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The Deputy Chairman of Committees (Lord Brougham and Vaux) (Con)
My Lords, Members are encouraged to leave some distance between themselves and others and to wear a face covering when not speaking. If there is a Division in the Chamber, we will adjourn the Committee for 10 minutes.
Advanced Research and Invention Agency Bill
Wednesday 17th November 2021
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Grand CommitteeRead Full debate Advanced Research and Invention Agency Act 2022 View all Advanced Research and Invention Agency Act 2022 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 24-I Marshalled list for Grand Committee - (15 Nov 2021)
Lord Ravensdale
“ARIA’s purpose
ARIA’s purpose is to fund projects with high transformational potential in pursuit of a sustainable and resilient society, planet and economy.”Member’s explanatory statement
The purpose of this amendment is to provide a broad sustainability purpose for ARIA which will ensure that it funds projects which align with core strategic challenges such as decarbonisation and which are sustainable.
Lord Ravensdale (CB)
My Lords, I shall also speak to Amendment 26 in my name. I thank the noble Lords, Lord Fox and Lord Browne, for their support for these amendments. I declare my interest as a director of Peers for the Planet and as an engineer and project director for Atkins.
There was much discussion at Second Reading of DARPA, the agency that has inspired ARIA. DARPA succeeded in changing the world because it took enormous gambles, failing often but with a few projects that succeeded, more than justifying the payouts and creating trillions of dollars in value. This freedom to take risks and to fail is its most important characteristic. That is exemplified by the second project that DARPA funded, Project Orion: a proposal for a manned spacecraft propelled by nuclear explosions. The head of DARPA at the time astutely stated that one of the main challenges was doing that in such a way that the occupants were not killed. While that particular high-risk project did not succeed, for obvious reasons, many others did: the internet, stealth technology and Moderna’s Covid-19 vaccine, to name but a few.
ARIA certainly takes that lesson from DARPA to heart, as described in the Bill: getting bureaucracy out of the way and giving a high-calibre team based on programme managers the freedom to deliver high-risk, high-reward research. But there is another vital lesson to take from DARPA which I referred to on Second Reading: a clear purpose for the organisation. Everything that DARPA does is defined by its aim of ensuring the technological supremacy of the United States armed forces. In 1958, the USA fortuitously hit upon a combination of factors for a research organisation—a clear purpose, freedom to fail, programme-manager-led—that literally changed the world. The US has taken this purpose-oriented approach in all its DARPA derivatives since, including ARPA-E and HSARPA.
To have the longevity and political staying power that DARPA has demonstrated, ARIA needs to have a purpose, and that purpose needs to be closely coupled to the strategic goals of the nation. Foremost among those strategic goals are the UK’s net-zero and environmental goals. Giving ARIA a broad sustainable purpose will allow a flexible approach to research, while at the same time being aligned with the innovation strategy that highlights the need to direct innovation towards
“our top priority societal missions … like the climate and biodiversity crises”.
It will also ensure that projects and proposals that would be contrary to those strategic goals do not progress.
Attempting to reverse engineer DARPA is not a guaranteed route to success, but we need to take the benefit of real-world experience in learning the lessons of why DARPA succeeded and giving ARIA the best chance of success, which is what we all want.
We know how vital R&D is to achieving our net-zero and environmental targets. For example, the International Energy Agency has stated that almost half the emissions reductions required by 2050 are expected to rely on technologies that have not yet reached the market. In this area, what must be done—the key enabler to make net zero politically possible across the world—is to create green energy at a price point that is cheaper than fossil fuels. So, we need nothing less than revolution in net zero and environmental R&D to make our goals possible.
That brings me to the specifics of my Amendments 1 and 26. Amendment 1 is very simple. It states:
“ARIA’s purpose is to fund projects with high transformational potential in pursuit of a sustainable and resilient society, planet and economy.”
This amendment would give ARIA a broad sustainability purpose in line with the points I have made, and in that sense, I believe, would fulfil the need to orient ARIA towards alignment with the most important strategic goal of the nation, and indeed the world.
In crafting the amendment, I have listened carefully to feedback from the Minister during the progress of the Bill in the other place, in that the Government do not wish to unduly constrain ARIA. That is why the amendment is written around a broad sustainability purpose, not a specific net-zero objective or mission. My amendment is not about saying that other streams of research not specifically related to net zero or the environment cannot progress; just that any such streams must not be contrary to, and preferably support, the core strategic challenges. Having a broad purpose and key priorities in setting the direction of the organisation is what the amendment seeks to achieve, while still retaining the flexibility the Government want for ARIA.
My Amendment 26 would ensure that consideration for our climate and environmental goals is embedded within ARIA’s functions. It is modelled on similar government provisions in other legislation, including most recently in the Skills and Post-16 Education Bill. As noble Lords will be aware, the Committee on Climate Change, given the advice that there is a need for a coherent approach to achieving net zero, has made it a priority recommendation for 2021 to ensure that all government policy decisions are compatible with the Government’s climate commitments.
In this sense, the amendment would align this Bill with other amendments the Government have put forward across a range of recent legislation, such as the skills Bill, the Financial Services Act and the Pension Schemes Act. To meet our goals, we need carefully to consider the systems aspects of net zero and ensure that consideration of these goals is embedded into all government policy and legislation where it is practical to do so.
Given how critical R&D is to achieving our goals, I hope the Government will agree that such considerations really need to be present in this Bill in order to align it with their broader strategy. It is not about stopping projects that are not directly related net zero; rather, it is about ensuring that the impacts in the context of compatibility with our climate commitments have been properly considered and factored into decision-making. It is a question of consistency with other legislation.
In summary, consideration of sustainability goals and functions in the Bill has wide support across the academic community, including from Professor Richard Jones, the science policy expert who has been involved in much of the thinking around the formation of ARIA. The amendment provides an excellent opportunity for the Government to maximise the benefit from the £800 million of funding, to demonstrate to international partners at this critical point post COP a new model for climate and net-zero aligned R&D, and to develop the new technologies that we will need to help the UK and the rest of the world achieve our targets. Finally, it would ensure longevity and long-term political support for the organisation, irrespective of the Government of the day, something the whole of Parliament can get behind. I beg to move.
Lord Lansley (Con)
My Lords, I am very pleased to follow the noble Lord, Lord Ravensdale. Two of the amendments in this first group are in my name, Amendments 25 and 27, and I want to speak to Amendment 27 first. It is grouped with Amendment 1 because we start by debating, quite properly, the purposes of ARIA as an agency. What is it here to achieve?
As the noble Lord, Lord Ravensdale, said, we are not seeking to replicate DARPA but to learn from it. DARPA said that its sense of mission was part of the reason for its success. However, that mission in this context was originally
“to prevent and create technological surprise”.
That is an interesting concept—to prevent technological surprise happening to the American Government and, at the same time, to create technological surprise on its own part. One might say that you could substitute “create technological advantage” in the latter case. Interestingly, in more recent years, when DARPA staff were asked what they regarded as their mission, they said it was to be part of “shaping the future”. Indeed, I think that is where our starting point should be. We want ARIA as an agency to be part of shaping the future.
My problem with Amendment 1—actually, I do not have a problem with Amendment 1, because you could stretch the language of sustainability anywhere; that is its advantage but also its problem. I am not sure I understand what the board of ARIA, or its leading members, would interpret as being outside the scope of the sustainability criterion. Does it actually help them? I am not sure that it does. If anything, they might feel that it constrains them towards certain missions. The DARPA example we ought to learn from is that, in practice, it set out to define for itself a range of missions within the organisation.
I note that sitting next to the noble Lord, Lord Ravensdale, is the noble Lord, Lord Broers. I take from his Second Reading speech the thought that the programme managers are at the heart of this system, and the programme managers are chosen in relation to the programmes that DARPA is pursuing. I suspect the same will have to be true for ARIA—that it has to decide, “What are our programmes?” The programmes, in my view, might be mission-led—for example, related to adaptation to climate change—but at the same time they might be technology-led. For example, they might be to pursue AI and the data economy or to look at cell or gene therapy. There is a range of those possibilities. We need to give ARIA, as an organisation, the flexibility to decide the missions that it thinks fulfils its purposes. The missions will develop over time, but the legislation cannot change repeatedly over time, so the legislation should be sufficient to enable ARIA to select the missions it wants for the future.
My Amendment 27 is in this group. A report of July 2016 produced for DARPA about innovation in DARPA isolated four “sources of success”, as it put it, the first of which was the “limited tenure” of the leading executive members
“and the urgency it promotes”—
nobody was appointed for a period exceeding five years. The second was a “sense of mission”, which I was just talking about. The third was “Trust and autonomy”—both giving DARPA autonomy but also within the organisation trusting and giving autonomy to the programme managers in particular. The fourth was:
“Risk-taking and tolerance of failure”,
which of course we are setting out to incorporate into this legislation for ARIA. I add that DARPA interpreted this as meaning “Move fast and take risks”—do not spend a great deal of time trying to assess all the risks, because you could lose the opportunities in the process.
Amendment 27 seeks to replace the language of Clause 3, not because I have any objection to the purposes set out in Clause 3; my objection is to the drafting. It says:
“ARIA may give particular weight”—
I am afraid I do not understand what is meant by “particular weight” or how people who read it subsequently will know what that means in this context—
“to the potential for significant benefits”.
We are all agreed about “significant benefits” and we know what they are because they are in Clause 2(6) above. It then refers to
“research … that carries a high risk of failure.”
It is awfully close to being a piece of legislation that says that ARIA should look for projects that are quite likely to fail because those are likely to give the most significant benefits.
This is not the approach that legislation should take. Legislation should be more deliberate. I thought: what are Ministers actually looking to do in this clause? I agree with the noble Lord, Lord Ravensdale, in his Amendment 1. Ministers—and we—are looking for ARIA to seek to have transformational effects. I think we are agreed about that. That is why Amendment 27 refers to “transformational effects”. I have also included a reference to the possibility of technological advance through
“the development and exploitation of … research”.
I do not think that is mentioned elsewhere but I think it is helpful because, actually, many of the advances that have occurred, including in DARPA’s programmes, were not themselves the object of the mission but were the result of the process of discovery and curiosity and the exploitation of research.
Baroness Brown of Cambridge (CB)
My Lords, I rise to support Amendment 1 and the amendments in this group that are about giving a purpose to ARIA associated with climate change and the environment. I declare my interests as a non-executive director of Frontier IP and the chair of BGF’s Clean Growth Advisory Board.
As the noble Lord, Lord Lansley, has indicated, ARIA’s success or failure will depend, crucially, on recruiting outstanding programme managers. These people will need to be interpreters and matchmakers well networked in industry and academia, with an excellent understanding of science and technology, strong lateral thinking skills—many of the things the noble Lord has already mentioned. They will also need to be tough risk-takers, but not gamblers. They will be hard to find, yet finding the right people is going to be critical to this success. Finding them will be the first constraint. Inevitably, they will have specific areas of expertise.
With a limited initial budget, focusing ARIA, at least initially, on the critical challenge of climate change and the environment will be a great way both to help address our greatest challenge and to support the UK economy. But it will also provide a valuable focus for the recruitment of these key individuals—the people who initially occupy these absolutely fundamental posts.
Lord Willetts (Con)
I would like briefly to intervene on this important group of amendments and should declare an interest as a member of the board of UKRI, which is very relevant to the issues we are currently considering. I am not acting as a spokesman on behalf of UKRI, but drawing on the experience that we have had there.
I welcome any attempt to bring greater diversity and innovation to our funding landscape. We do not want a monolith; we want lots of different ways of getting funding and lots of different requirements. Anything that adds to the diversity of the funding landscape I welcome as a good thing. However, I have two or three questions on which I hope that the Minister will be able to give some assurance.
First, the task of ARIA is often described as high-risk, high-reward research. In a way, Clause 3, to which my noble friend Lord Lansley, has referred, is an attempt at setting out in legal prose “high risk, high return”. It is great that ARIA will have that as its objective, but my one concern when I hear this language is the implication that all other public funding for R&D could not be high risk and high return and that it is in some sort of boring bureaucratic pot where everything is safety first and low return. I would be grateful for the Minister’s assurance that it is also perfectly possible for the agencies of UKRI and indeed other sources of public funding for R&D also to engage in high-risk, high-return research. It would place too much weight on ARIA’s shoulders and eliminate diversity if we said that it is the only agency that can act in that way. Having that authoritative assurance from the Government would be of great value in ensuring that our whole research ecosystem carries on performing in an innovative way.
Secondly, I want to reflect on the lessons that can be learned from the Industrial Strategy Challenge Fund, to which my noble friend has also referred, and seek another assurance from the Minister. When Theresa May’s Government put substantial funding—over £2 billion—into the Industrial Strategy Challenge Fund, Innovate UK, the main agency for delivering that programme, travelled to America to look at what ARPA did. It said, “These programme directors at ARPA are fantastic—we should have the ARPA model of programme directors in order to deliver the Government’s Industrial Strategy Challenge Fund”.
I can remember the debate that took place. The Treasury said “Hang on, how much are these programme directors going to be paid? They can’t possibly be paid more than is set by our pay rules”—the pay limit was, I think, £100,000. The Treasury then also said, “We need a committee to scrutinise that the money is being well spent and, to ensure it is making progress, a monthly report would be about right”. Then BEIS, which I do not think completely trusted the Treasury and saw this as a BEIS operation, said, “BEIS also needs to have a committee that meets to scrutinise the success of this programme director; we have slightly different criteria from the Treasury, so our committee should meet once a month”. It averaged out—at the start; it may have got better—that every fortnight there was some supervisory committee or other checking that this programme director was delivering the objectives.
That is the slow, painful process of bureaucratic accretion. It is marvellous that ARIA is, we are assured, going to be free of all that. It would be quite good, however, if other parts of research funding could also be free of those constraints. Indeed, the Government have several reviews on at the moment that are relevant to this, including the Tickell review of bureaucracy and a new grant review of UKRI.
I also hope that the Minister can assure us that, wherever possible, especially if these proposals emerge from two reviews set up by the Government, freedoms being extended to ARIA will also be enjoyed by agencies working under UKRI or other departmental bodies. The problem of bureaucracy must be solved across the whole swathe of R&D funding, not just by creating one institution outside the constraints that everyone else has to work under. I would like an assurance that lessons are being learned, both for the functioning of ARIA and from these two reviews now under way.
Thirdly and finally, we can already sense—not least from the opening presentation from the noble Lord, Lord Ravensdale, on the purpose of ARIA—a fascinating debate about missions versus technologies. I have frequently had that debate with my friend Professor Mariana Mazzucato, who has brought the language of missions into public policy, which is excellent. However, I always say to her that the Kennedy moonshot did not arise because a bunch of PPE-ists—speaking as one myself—sat around saying, “Wouldn’t it be wonderful if we sent someone to the moon? That would really get the media’s attention; let’s do that, Mr President”, but because of prior investment in general-purpose technologies, including rockets. It was a deep understanding of what the technologies might be capable of that led to the formulation of the mission.
One can resolve this by wordplay, by making “backing technologies” one of the missions, but the point made earlier about preventing and creating technological surprise tells us that, really, DARPA was always envisaged as driving American leadership in technology. We have the opportunity to choose missions only because of prior investment in underlying science and technology, which turns those missions from empty fantasies into deliverable objectives.
I very much hope we will have an assurance from the Minister during the course of our scrutiny today that ARIA will strike a happy balance. It should be able to fund general-purpose technologies without knowing exactly how they will prove useful, while suspecting that something of that power and significance will have use. It may also wish to fund specific missions or challenges, but it would be a strategic mistake to put all its eggs in one basket. It is the interaction of technological investment capabilities with missions and challenges that really drives innovation. I very much hope that ARIA will pursue both approaches.
Baroness Bennett of Manor Castle (GP)
My Lords, I apologise for not taking part at Second Reading; I was at the COP 26 climate talks, which are of obvious relevance to this group in particular.
I begin by reflecting on the model for ARIA—DARPA, which was of course military. We have talked a lot about risk-taking, which is usually interpreted as the risk of failure to achieve your objectives. When we think about the origins of this—the child very often showing some characteristics of its parent—we can also think about the risks attached to achieving your outcomes but causing unintended effects. With DARPA, there was Agent Orange in the Vietnam War and the drone warfare of the Gulf War, and it is now working on killer drones and robot warriors.
Looking at the model of DARPA, researcher Annie Jacobsen, author of The Pentagon’s Brain: An Uncensored History of DARPA, talked about how it very much became embedded in what has been described, including by US Presidents, as the military-industrial complex. Giving a mission is very important, in order to avoid institutional capture. That is one of the reasons why I speak in favour of Amendments 1, 21 and 26. We have not yet had the chance to hear from the noble Baroness, Lady Chapman, but I think her Amendment 21 is in a sense similar to Amendments 1 and 26, except that it provides a more regular review mechanism.
If we think about what ARIA is for and look at some of the proposals put forward, we see that the CBI described it as
“an international lynchpin for business investment”
that is to “ultimately deliver new products”. McKernan said that it was
“a public sector, new technology seed fund”
whereas, by contrast, the Russell Group described it as
“multidisciplinary research teams with the capacity to take a holistic approach”.
That brings us to the debate that the noble Lord, Lord Willetts, was just addressing, which was also raised by the noble Lord, Lord Lansley—and why I would express opposition to his Amendment 25. There is a danger in focusing on technology rather than on mission. We want to focus on mission and on the problems that we need to solve—and Amendment 1 very much focuses on the great problem that we need to solve. Discussion thus far has focused very much on the climate emergency, but it also talks about a “sustainable … society”.
Lord Oates (LD)
My Lords, I will speak to Amendments 1, 21 and 26. While the noble Lord, Lord Lansley, made a compelling case for his Amendment 27, I would probably part from him on the wider issue of mission. I was grateful to the noble Lord, Lord Willetts, who set out quite a few of the issues, and particularly for his underlining once again that the Treasury is at the heart of undermining almost every single good idea that ever occurs to government.
I regret that I was not present for the Second Reading of this Bill as I was on a train en route to the COP conference, but I had a chance to read the record of the debate. Much of it has been reflected in today’s debate, particularly the point, made by a number of noble Lords, that ARIA lacks the clear purpose which they feel will be necessary if it is be successful. Noble Lords, including the noble Lord, Lord Ravensdale, pointed out again today that that purpose was at the heart of the success of the US Defense Advanced Research Projects Agency. The noble Lords, Lord Ravensdale and Lord Davies of Brixton, and my noble friend Lord Fox, all gave some guide as to what such a purpose might be in playing a key role in addressing issues of sustainability and climate change.
Amendment 1, as we have heard, would establish a broad sustainability purpose for ARIA. Amendment 21 would set the core mission in a slightly different way, very much focused on net-zero emissions, and Amendment 26 is again different, focusing on ARIA having to give due consideration to the net-zero target and other environmental goals. As this debate has indicated, there are essentially two questions to be determined. The first is whether there should be a specific purpose or mission for this body, and whether such a purpose or mission would help or hinder it in delivering the sort of transformative success that we all hope it will deliver. The second question is, of course, that if we conclude that a sense of mission would assist, what that mission should be.
On the first question, although the Secretary of State and others in the other place were happy to cite DARPA and its successes as the model when extolling the virtues of this proposal, the reluctance to give it the clear focus that DARPA had seems a mistake. DARPA had a clear mission, a purpose: not to be surprised by technology and, hopefully, to surprise others with it. It had a clear focus, which was the threat posed by the Soviet Union and the need to maintain the competitive scientific and research advantage over it that Sputnik and other programmes had caused the US to worry it was losing. That sense of purpose was critical in driving that early success. I fear that without a clear focus for our advanced research agency, it will lack the direction and urgency that DARPA had, and which is required to achieve transformational change.
It is clear to me that a purpose, a mission, will be very important to ARIA’s success. If so, surely there is no more compelling case than to focus the work and energy on the climate and ecological emergency that we face. That is a long-term issue, as the noble Lord, Lord Ravensdale, pointed out. Tackling those challenges will require massive innovation and ingenuity, and the development of practical applications from that.
If the purpose of DARPA was to protect the national security of the United States by retaining its scientific edge against the threat of the Soviet Union, today, the threat from climate change, although very different, is some orders of magnitude greater. It is an existential threat to all humanity, and to bring a halt to climate change or stop it running completely out of control will test us to our utmost—it will test our ingenuity, our practical application and our ability to deploy all our resources. If we do not harness our advanced research agency to that task, future generations will surely look back on such a decision with a real sense of astonishment.
The noble Lord, Lord Lansley, said that DARPA was really about shaping the future. This agency should be about shaping the future, but we must ensure that there is a future to shape. Unless we tackle the climate and ecological emergency, there will not be.
Lord Broers (CB)
My Lords, I shall make just a few comments. I declare my interests, as I did on Second Reading. I spent most of my active life, 40 or 50 years, doing things that ARPA was doing—that we were doing in IBM in the United States—and I have spent more recent years working with the Queen Elizabeth prize and now with the Draper Prize of the National Academy of Engineering of the United States. I declare my membership of that academy, the Chinese academy and the Australian academy, as well as the royal academy here.
The noble Lord, Lord Willetts, raised a lot of cogent points, but the mission of ARIA—I wish “Invention” was replaced by “Innovation”, but that is a small point —must be, to distinguish it from UKRI, to take projects all the way through until they are fully implemented, fully available for people to use, commercially sensible and affordable, and to solve an important problem. A lot of what UKRI does is the essential discovery and understanding of how the world works, and these things should be different.
One thing is very much in common: you need creative people. In ARIA you probably need creative engineers—there will be scientists as well; most of these things are mixed—and creative engineers are no different to creative musicians or creative artists. They do not like being told what to paint, what to compose, how to compose or how to paint. That would turn them all away.
I test my credibility by quoting Donald Rumsfeld. ARIA is all about “unknown unknowns”. I have been sitting down for the last two hours reading all these amendments; we are trying to tie down ARIA so that we understand what it will do, when it will do it, how often it will report on doing it and everything else. That is not what we are trying to create. We will destroy the thing before we ever give birth to it.
I support these amendments, because the challenge that the noble Lord, Lord Ravensdale, has come up with, and others have supported, is the climate problem. That is huge and wide. I do not think it is a constraint that will really trouble creative people at the moment. In fact, I have met a lot of people who are very successful in one field of research and have abandoned that and moved into the field of climate and what they can do about it, because they feel that is the best place to apply their creativity and intellect. I urge the Minister and everybody who will take this through: let us not strangle the poor thing before it begins.
Baroness Chapman of Darlington (Lab)
My Lords, it is a pleasure to follow the noble Lord. He is completely right when he says that climate is a broad enough canvas on which people can paint. Broadly speaking, I do not mind painters and artists painting whatever they like, whenever they like, on whatever they like—if I am not paying for it. But we are paying for this, and it is not unreasonable for us to say that we would like ARIA to turn its attention primarily to the climate emergency, the very thing that is threatening our existence on this planet. That is a sufficiently exciting challenge to set ARIA.
The noble Lord, Lord Lansley, was very persuasive and I understand the attraction of allowing maximum freedom, but the risk is that it becomes directionless. For a quite small organisation, as ARIA is, that is a risk, so my view is that ARIA needs a core mission.
The Government want ARIA to have maximum flexibility and be able to back projects as it sees fit, free of any political interference or unnecessary bureaucracy. The noble Lord, Lord Willetts, explained very well how deadening that could be. We certainly have no wish to enter into the kind of situation he described, but a research focus or a mission could be achieved without that risk. He said that no one could have set out to achieve the moon landings without being able to look back and build on existing technology. That is completely right, but we do not have the luxury of that at this moment. We have a very real, immediate risk that we need to address, which is why we favour making the mission one of climate.
We all want ARIA to succeed. This is quite a good Bill from a cross-party working point of view because we all want it to work, but asking the board to come up with its own mission—or, even worse, not having a mission at all—would not assist ARIA and could set it up with a weakness, or even to fail. We all need direction, purpose and a sense that what we are doing is contributing to a greater good, so telling ARIA to back any scientific research and to do what it sees fit would be a mistake. The board will anyway spend its first few months deciding how it is going to make decisions. We are not attempting to tell it how to do that, but it would have no framework or sense of the UK’s priorities, and I just do not think that is necessary. It would be a mistake and, if we corrected it, that would not diminish ARIA in any way; in fact, it would be strengthened.
Lord Browne of Ladyton (Lab)
My Lords, I will speak in support of Amendments 1 and 26—to which I have added my name—and Amendment 21. Like the noble Baroness, Lady Brown, and the noble Lord, Lord Oates, I have to tender my apologies for not contributing to the Second Reading debate. I was not at COP 26 or on my way there, I was actually in this Room in the Committee on the Armed Forces Bill and speaking to amendments in my name and which I had supported. I regret that I was unable to be there.
I agree with the arguments put forward by a number of noble Lords and I do not intend to rehearse them. Because I was not at Second Reading, I read the debate very carefully and a number of Peers raised the issue of lack of purpose of ARIA and suggested a climate change purpose, which I support. The Minister pushed back on this. He said that solving particular national challenges falls
“very much within the UKRI remit”
and a programme to develop these challenges would be decided by the national science and technology council in due course. He may be in a position to tell us how long that “due course” will be today. It would be interesting if he was.
Finally, he commented that:
“It would clearly be inappropriate to create another new body to do essentially the same thing.”
He said that ARIA’s leadership would be responsible for setting its strategy and—here I quote the issue I am really interested in—upholding
“the autonomy which is at the heart of this new agency”.—[Official Report, 2/11/21; col. 1200.]
That is what I want to explore. I hope I have not misrepresented the noble Lord’s response but if I have, he will have the opportunity to correct me.
It is clear that ARIA enjoys some autonomy but it is not unlimited. In fact, in exercising its functions as set out in Clause 2(6), it “must have regard to” a number of things and they are very broad. I will read them in short:
“contributing to economic growth, or an economic benefit, in the United Kingdom … promoting scientific innovation and invention in the United Kingdom”—
there is the word “innovation”—and
“improving the quality of life in the United Kingdom”.
That is pretty broad. So, it is constrained to do that.
Clause 5 states:
“The Secretary of State may give ARIA directions … in the interests of national security.”
These directions must be complied with and I fully appreciate why that is there. I understand it and I think it is necessary, and I do not expect the Minister to expand on that.
However, I do expect him to expand on the potential significant restriction that is in Clause 4. Clause 4 grants the power by which the Secretary of State may make grants to ARIA. Clause 4(2) states:
“Grants under subsection (1) may be subject to conditions.”
Clause 4(3) refers to one particular condition, for some reason, in the absence of any others: that the grant may need
“to be repaid (with or without payment of interest).”
I was intrigued by that and thought there was bound to be an explanation of what the Government have in mind. What limitations on the autonomy of ARIA are going be put in these conditions? Why do the Government think they need this restriction?
As always, I reached for the Explanatory Notes. I will quote them because they make very clear the purpose of this:
“This Clause provides the Secretary of State with a grant funding power in relation to ARIA.”
I had worked that out. They then state:
“The Secretary of State can make grants subject to conditions. In particular, the conditions may require the repayment of financial support with or without payment of interest.”
They simply restate the clause.
I am still at a loss to understand. I hope that if the Minister chooses to reject any of these amendments on the basis of the restriction of autonomy, he will give the Grand Committee the opportunity to understand what restrictions the Government intend to put on the autonomy of ARIA. That will help us, at the appropriate time, to decide whether these restrictions—I do not believe they are restrictions; I will come to that in a moment—are actually restricting any autonomy which it is likely to have. If that is the issue on which these amendments stumble, it needs to be described in a wee bit more detail.
However, my argument is that these provisions do not seek to create a new body to do essentially the same thing as the national science and technology council, but of course we will not know what that is until we see what the national science and technology council does under the leadership of the Prime Minister. In the context of a world in which we have clear national priorities, we are told that we cannot allow an autonomy for this institution that we would not allow for any other institution; that is, to act against the national interest. I remind the Minister that the pursuit of a sustainable and resilient society is one of the four overarching objectives set by the strategic framework set out in the integrated review. That framework, in the Government’s own words,
“establishes the Government’s overarching national security and international policy objectives … to 2025.”
The provision to constrain ARIA from acting against that is clearly in the stated agreed national interest.
In relation to the Climate Change Act, that is a national obligation. Surely, we cannot anticipate that ARIA would act against that national obligation of net zero by 2050, or the imperative of adaptation to climate change, or the environmental goals which have been, and are being, developed in this Parliament. In a sense, red lines are being put around ARIA but they are about national imperatives, which are shared by everyone, including the Government. They are desirable for all the reasons that noble Lords have set out but, I have one question for the Minister, which I would like him to answer either now or at some point before Report: what do the Government expect the CEO and the board of ARIA to want to do which would be inconsistent with these provisions? I guarantee noble Lords that should it wish to do any such things, the Government would seek to restrict its autonomy because it would be acting in an undesirable way.
Lord Fox (LD)
My Lords, this has been a fascinating debate. I thank all noble Lords for their contributions. I was delighted to hear the defence of basic research made by the noble Lord, Lord Willetts, and the point he made about bureaucracy in the rest—it should be said, the larger part—of research funding was well made and echoed many of the Second Reading comments.
However, there is a danger that we are taking the DARPA bait a little too seriously. The Government have played this into all their communications. Let us look at what we are comparing. DARPA has a huge budget, many times bigger than even the best budget we could expect for ARIA. It has been there for decades. The noble Lord, Lord Willetts, mentioned Mariana Mazzucato. What she is very good at is pointing out how the technologies developed in DARPA have then been picked up by technology businesses within the United States, some of them part of the “military-industrial complex”, as the noble Baroness, Lady Bennett, put it, but of course Apple is one of her best examples and even the noble Baroness, Lady Bennett, might have one of those to hand. The mobilisation of this technology is absolutely key, which is why what the noble Lord, Lord Broers, had to say was so important and why the project management part is such a central point.
I refer back to the points that started to be made through Amendment 25, proposed by the noble Lord, Lord Lansley. At Second Reading, the Minister deployed the words of Professor Dame Ottoline Leyser, the chief executive of UKRI. He quoted her telling the Public Bill Committee in the other place that
“the priorities that the Government and Ministers set to solve particular challenges for the nation … fall very much within the UKRI remit”.—[Official Report, Commons, Advanced Research and Invention Agency Bill Committee, 14/4/21; col. 8]
The implication—and almost the stated point—was that because UKRI is covering this, there is no need for ARIA to cover it.
Viscount Stansgate (Lab)
My Lords—ah. I caught the expression on the Minister’s face, and I apologise for delaying his remarks. This is my first Bill Committee and I would like to say a few brief words in support of Amendments 1 and 21 and a word about the amendment in the name of the noble Lord, Lord Lansley.
We are, after all, discussing something new. I spoke at Second Reading—those who missed it were spared that experience—and said:
“We are discussing an experiment”.—[Official Report, 2/11/21; col. 1169.]
In some ways, it is an interesting occasion. I presume that we will find out from the Minister that even the Government themselves do not know what it will be like, because it is in the nature of the thing that we do not.
The Committee and the Bill team have been spared the amendments I tabled, because as a new Member I submitted them too late. Nevertheless, some of the amendments I drafted relate to some of those on the Marshalled List, in particular relating to climate change as an objective that should in some way be associated with ARIA’s work. It is quite a timely moment to be discussing this in Committee. COP has just finished, there will be a debate in the House tomorrow on its aftermath, and, as it is the most existential crisis facing planet earth, as one noble Lord said, I do not see any reason why ARIA cannot play a part in trying to deal with the issues we face.
When I was very young, we had a model of Sputnik in our living room; I do not know how it arrived. I look back now and realise that that was what triggered ARPA and DARPA, which to some extent we are basing our discussion on now. As the noble Lord, Lord Lansley, said, it was to prevent surprises. The United States Government did not like that surprise, for sure.
As the noble Lord, Lord Lansley, also says in his Amendment 25, we are not here to create a body that duplicates UKRI. I listened with great interest to the noble Lord, Lord Willetts, who has an enormous amount of experience in this field. When you talk about the bureaucracy involved, that strikes a chord with everybody, maybe on this Bench as well, including—if I may use this phrase—my noble friend Lord Broers, who referred to his wish to change the Bill’s Title.
My first amendment was to change the Bill’s Title. I know you normally do not spend time thinking about it, but perhaps when the Minister replies he could at least explain why the Government themselves, who introduced the concept of ARPA, subsequently changed its name. It would be helpful to know some of the thinking that led to the change of name to ARIA, whatever the “I” stands for.
As we know that this is based to some extent on the experience of DARPA, I can report that I spoke recently to two Americans who are very interested in what we are doing here. The American Chemical Society and someone in the State Department expressed great interest in what we are discussing. They are looking to see how we develop this idea and put it into practice.
My last point to make at the outset is that the relationships between ARIA and the other bodies in the scientific landscape will be very important. Someone already quoted Dame Ottoline Leyser of UKRI, and I know that she said, I think before the Select Committee, that it will be vital to maintain relationships with key players right across the system. There is a range of other bodies. My noble friend referred to the new council for science and technology, chaired by the Prime Minister, and we also have a new set of relationships with the Chief Scientific Adviser, both in his existing capacity and in his new capacity as Chief Technology Adviser. I hope that we can explore some of those in Committee. Forgive me for saying this, but it would have helped if we had had some idea of what the framework document is due to say because, as I understand it, it will describe some of the relationships that the Government have in mind that ARIA should have with other major bodies in the rest of the scientific world.
I shall leave it there and try to cheer the Minister up by saying that I will sit down and, as far as I know, no one else is following me, so the floor is his.
The Parliamentary Under-Secretary of State, Department for Business, Energy and Industrial Strategy (Lord Callanan) (Con)
I thank the noble Viscount, Lord Stansgate, for his intervention. When he was unable to complete his remarks at Second Reading, he said that he would come back in Committee and add to what he had said—which makes a change from what normally happens, with people coming back to repeat their Second Reading speeches. It is good to hear from the noble Viscount.
I am also delighted to hear the unequivocal support from the Opposition Benches for that great neo-conservative, Donald Rumsfeld—quoted by both Cross-Benchers and the Liberal Democrats. A great man indeed.
Amendments 1, 21, 25 and 26 create requirements that seek to narrow, or to have the Government direct, ARIA’s funding. Amendment 1 would require ARIA to pursue projects that contribute to a sustainable and resilient society, planet and economy. Amendment 25 seeks to specify a relationship with UKRI. Amendments 21 and 26 would set ARIA’s core mission as to support achieving the target established in Section 1 of the Climate Change Act. Once achieved, ARIA’s mission would then be set every five years by government by an affirmative SI. Of course, I thank noble Lords for tabling these timely and topical amendments, particularly given the partial success at COP 26 last week.
Starting with Amendment 1 from the noble Lord, Lord Ravensdale, let me point him to Clause 2(6), where, in exercising its functions, ARIA must have regard to contributing to economic growth, promoting scientific innovation and invention, or improving the quality of life. These considerations ensure that ARIA’s activities are geared towards beneficial outcomes, which will of course include sustainability and resilience. Of course, this broad characterisation of the benefits of ARIA’s activities does not represent the limits of ambition for individual ARIA programmes, or substitute for ARIA’s unique tolerance to failure as set out in Clause 3.
That brings me on to Amendment 27 from my noble friend Lord Lansley. I have heard consistently from the scientific community that ARIA must have high risk tolerance to succeed, and indeed that gets to the heart of what ARIA is all about. It is therefore important, in my view, that we express that idea precisely. My noble friend’s alternative articulation of risk tolerance, for which I thank him, does not specify the particular weight that ARIA may give to this type of activity, and I think that is crucial, particularly for the NAO’s assessment of whether ARIA’s activities are in line with its stated functions.
Lord Ravensdale (CB)
I thank all noble Lords who have taken part in this excellent and illuminating debate. I think it has demonstrated a clear feeling that there is a problem to be addressed in terms of what ARIA is to do—
“a brand in search of a product”,
as was said in the report of the House of Commons Science and Technology Committee. The real advantages for the Government in considering the purpose of the organisation are that it is all about maximising the chances of ARIA’s success as we take it forward.
I will draw out a few key points. The noble Lord, Lord Lansley, got to the heart of the matter in asking whether the organisation should be technology-led or mission or purpose-led. He made some very strong arguments, but I come back to what the deputy director of DARPA said in his evidence to the House of Commons Science and Technology Committee:
“having national security as the mission frames everything”
that DARPA does, having that high-level purpose within which the technology is developed.
I also emphasise some of the points made by the noble Baroness, Lady Brown, and the noble Lord, Lord Broers, about the value of setting that goal and creating some inspiration behind the organisation—using it to inspire and bring in the right people—and the importance to its success of the programme directors.
The noble Lord, Lord Oates, emphasised the importance of that sense of purpose, and the competition with the Soviet Union, for DARPA when it was set up in 1958 in response to the launch of Sputnik. It is easy to forget the panic at that time; it was Lyndon Johnson who envisioned a day when the Soviets would be
“dropping bombs on us from space like kids dropping rocks onto cars from freeway overpasses.”
For very different threats, we need to take the same approach that the US did in 1958, rethinking our innovation systems to meet our climate goals. The noble Baroness, Lady Chapman, emphasised the importance of bringing the whole of Parliament along with this organisation, and building support across Parliament for it in the long term. Taking that long-term view is another key point.
We will come back to this, and I look forward to further discussions with the Minister. On that basis, I beg leave to withdraw my amendment.
Baroness Noakes
Baroness Noakes (Con)
My Lords, in moving Amendment 2 I will speak also to Amendments 6, 8 and 10 in my name. These are all probing amendments that concern the governance of ARIA and its board, so I am dealing with much more mundane matters than we covered in the first group. There are a lot of different aspects in this group so I apologise in advance for taking a little time in my opening remarks.
Amendment 2 is about the size of the ARIA board. It deletes paragraph 2(2)(c), which allows between two and five executive members to be appointed to the board in addition to the chief executive and the chief financial officer. As with the governance arrangements relating to commercial boards, paragraph 2(4) requires there to be a majority of non-executive members. Therefore, the minimum size of the ARIA board will be twice the number of the executive members, plus one. If there are two additional executive members, the total number of executives would be four, the minimum number of non-executive members would be five, with a minimum board size of nine. If, however, the full complement of five additional executive members was appointed, the board would comprise seven executive members, with a minimum of eight non-executive members, making 15 in total. There is, however, no limit to the number of non-executive members and hence no upper limit on the size of the board.
I believe that this design is flawed and could result in an unwieldy and ineffective board. Some years ago, in the wake of the financial crisis, Sir David Walker produced a review of corporate governance in banks and other financial services entities. His report included an annexe, which dealt with optimum board and committee size, based on evidence from a number of sources. Sir David said that the optimum board size was between eight and 12, and that beyond 12 a board was prone to
“passive free riding, dislocation and ‘groupthink’”;
in particular, the likelihood of groupthink increased “exponentially” above 12.
I will quote some of the rationale for this:
“This importance of size is due to the cognitive limit to the number of individuals with whom any one person can maintain stable relationships, this limit is a direct function of relative neocortex size, and this in turn limits group size.”
My own direct experience of a number of boards in different sectors over the years is pretty much in line with the Walker report.
At Second Reading I emphasised the need to avoid groupthink in ARIA, and I hope the Government will look again at their design for ARIA’s board. Many listed companies have only the chief executive and the CFO as board members, which helps limit overall size and keep the board effective. Is it really necessary to have a minimum of any extra executive members? Why not just set an upper limit on the size of the board—at, say, 12—and let the rule on the majority of non-executives drive the remaining appointments?
Amendment 6 is designed to ensure that the culture of ARIA is kept away from the Civil Service and government, about which I also spoke at Second Reading. It states that non-executives cannot be either Ministers of the Crown or employed by a government department and paid out of public expenditure. There is a precedent for a prohibition on Ministers and civil servants in the Bank of England legislation which governs appointments to the Court of the Bank of England. It is now in the Bank of England Act 1998, and I have largely copied that drafting, although I have added a prohibition regarding positions held within the five years preceding the appointment. It is clearly important that the central bank is formally independent of government. In the case of ARIA, formal independence is not the issue; rather, it is very important to be independent of the prevailing mindset in Whitehall. I hope that the Minister will agree with me on that.
Lord Lansley (Con)
My Lords, I am very glad to follow my noble friend Lady Noakes, who has typically managed to make some penetrating remarks about the prospective corporate governance of ARIA. All the amendments in this group, including mine, are probing amendments; that is the nature of debate at this stage. I hope the Government will take on board some of the things my noble friend has said, think about them carefully and perhaps bring forward their own amendments. What she had to say about the size of the board and the desirability of setting a limit on the number of executive members in order to keep the size of the board as whole under control makes perfect sense, as does the point about committees of the board.
My three amendments in this group also to try to establish how the Government are going to address the membership of ARIA. The first, as my noble friend said, is Amendment 3, which would remove the Chief Scientific Adviser from the board. By the way, this is no reflection on the Chief Scientific Adviser now, in the past or in the future. The point is that if we want ARIA to be independent and autonomy is an essential part of its role, does it make sense for the Chief Scientific Adviser, whoever she or he may be, to be sitting on that board trying to make decisions that are, almost by definition, different from the decisions being made by the rest of the research and innovation landscape? Indeed, the Chief Scientific Adviser is now the head of the new office for science and technology strategy.
If the CSA is leading the strategy for science and technology across the landscape, you might say that surely, they should be there, so that ARIA fits into that strategy. That is precisely the problem: ARIA should not be led in the same strategy as the other parts of the research and innovation landscape. Does it not create an inherent conflict of interest for the Chief Scientific Adviser to be setting the strategy on the one hand and departing from it on another, which is potentially what ARIA will be doing?
Amendments 5 and 7 in my name ask whether the appointment of a chair by the Secretary of State for Business, Energy and Industrial Strategy should be subject to some scrutiny. I have not gone to the step on this because I do not think the criteria are met for this to be an appointment that is subject to an agreement of or a recommendation from a committee of the House of Commons. However, given the existence of the Science and Technology Select Committee and the work it does in the Commons, it would be extremely helpful for it at least to have a hearing and to make some of its own remarks. That would help in the process of giving some democratic accountability to the initiation of the board itself. ARIA is going to autonomous, relatively independent and determined in large measure by its board. The appointments of the chair and the chief executive in the first instance are very significant in this regard.
Amendment 7 is precisely about the appointment of the first chief executive officer. I think the Government are currently searching for both chair and chief executive. The first chief executive officer appointment is not going to be made by the chair, so it is particularly important that there be a degree of objective scrutiny of that appointment. Subsequent appointments will be a matter for the chair and the non-executive members of the board.
I hope that the Government will at least recognise the potential merit of the Science and Technology Committee having a hearing in each case and offering its views.
Viscount Stansgate (Lab)
My Lords, I strongly support what the noble Lord, Lord Lansley, has said regarding his Amendments 5 and 7. One of the amendments lost to the Committee was drafted very much along the same lines, although mine made it. This is a very important issue. The work of the Select Committee in the House of Commons is superb. The former Minister, the noble Lord, Lord Willetts, knows all about it.
This is a very important principle, especially as we are discussing something so new and there is so much about it that we do not yet know. It is essential for the Select Committee to explore these matters with the chair and chief executive designate. I would go further than the noble Lord and make the appointments subject to the agreement of the Select Committee. Indeed, I regard this as an important principle to apply in general across many appointments made by government, many of which could be made subject to the agreement of the appropriate Select Committee.
As to the amendment from the noble Baroness, Lady Noakes, I found myself wondering, especially in regard to Amendment 2, whether her remarks about the ideal size of a board apply to the membership of a Committee stage of a Bill. Are we too large a group of people around this table effectively to conduct our business? I have an open mind on that, and I look forward to hearing what the Minister says in reply.
Lord Morse (CB)
My Lords, I will speak only briefly, primarily about the amendments from the noble Baroness, Lady Noakes. They all reflect best practice in corporate behaviour and should be taken very seriously. The one that goes even deeper than that is Amendment 6, which looks at the prohibition of civil servants and former Ministers from being on the board for five years. That is really important and thoughtful—that we do not import Civil Service groupthink, which is well protected in other venues and continues for long periods of time. Not to have that on the board is a major protection for the qualities that you want ARIA to have.
Lord Fox (LD)
My Lords, I am now going to indulge in some groupthink by agreeing with the last speaker and the noble Baroness, Lady Noakes. The Government fail to take her advice on corporate governance at their peril. All her amendments are sensible and ones that I hope the Minister, who clearly will not endorse them today, will be able to take away, think about and maybe amend a little to put the Government’s thumbprint on them. I suggest that it would be helpful to look at them seriously.
Amendments 5 and 7, as we have heard from the noble Lord, Lord Lansley, seek to inculcate the House of Commons Select Committee into the appointments process, at least at some point within it. Noble Lords will see, later on in the Bill, that Amendment 32 also seeks to carve out an ongoing role for that Select Committee. Clearly, if I were to stand by Amendment 32, Amendments 5 and 7 would also make a lot of sense, in that they will be there at the beginning.
It may be out of kilter or otherwise, but this set of amendments really looks at the membership and members of the board. I have a quick query, which may just be me getting things confused. The Minister kindly sent around the draft of the SI on conflicts of interests. Of course, this may come in when we come to talk about the fourth group of amendments. It refers to “members” throughout, and I am not clear what a member of this organisation is, which made me think that I am not actually clear what the legal structure of this organisation is. I think there is some work to do to help me—if no one else—through. Is this an incorporated association? Is it a company limited by guarantee? What is it? Until we know that, some of the other things that we need to discuss will become very difficult.
Baroness Chapman of Darlington (Lab)
My Lords, I will quickly put on record our position on this. I am also fascinated to find out why this issue of the Chief Scientific Adviser is there. I can imagine why, and I am speculating as to why, but I would like to know what the Minister had in his head in proposing that.
I put on record our support for Amendments 5 and 7 in particular. One of the themes from us on this Bill is about trying to enhance democratic engagement with ARIA—not control or oversight, but we think that there is space for some engagement there.
Lord Davies of Brixton (Lab)
At Second Reading I raised the appointment of the chair and the chief executive by the Government. Can the Minister make clear that these appointments will be subject to the normal code of practice, or whatever exactly it is called, for public appointments? Will it be subject to the same process as the majority of public appointments?
Lord Callanan (Con)
This group of amendments relates to the balance that we need to strike between ARIA’s independence from and accountability to government, which is a difficult balance to draw. I shall begin with the amendments relating to the composition of ARIA’s board.
Amendment 2 from my noble friend Lady Noakes would limit the executives on ARIA’s board to just the CEO and the CFO. I appreciate the spirit of her amendments, trying to ensure that ARIA is an agile body with a streamlined board, but we have decided that the number of executives should be at least four. We have said that in the interests of representing the different executive functions within the organisations. Similarly, we have imposed a maximum number to try to keep it as efficient as possible.
As the majority of the board members need to be non-executives, in our view, that means that the minimum total number of board members will be nine, to ensure a majority of non-executives, and our expected maximum is 15. We believe that this is very much in line with standard practice. It is not usual for legislation to specify quoracy arrangements, and the Bill’s current provisions mirror some of the procedural arrangements that are in the Higher Education and Research Act. I am also happy to confirm that it is not our intention to offer non-executive members pensions or gratuities—I do not want to get into a definition of gratuities—but it is commonplace to ensure that the provision is available.
The drafting that we have used is also found in the Higher Education and Research Act 2017 for UKRI non-executives under paragraph 7(2) of Schedule 9, and indeed in the Energy Act 2013 for the Office for Nuclear Regulation’s non-executives under paragraph 11(3) of Schedule 7. I therefore do not see that Amendment 8 in the name of my noble friend Lady Noakes is necessary.
I turn to Amendment 3. In our view, the Government’s Chief Scientific Adviser will bring a somewhat unique perspective to the ARIA board in their independent advisory capacity, with awareness of science and technology across government. It is important to emphasise that he or she will be on the board in their capacity as an independent adviser, not in their science and technology strategy capacity. Indeed, it is perfectly possible for there to be two different people in those roles. It is also important to emphasise that they will not do so on a privileged basis. Other non-executives will have been appointed for their expertise, their wide experience and their special knowledge of different facets of the research and development system, and they will equally provide ARIA with independent advice in the best interests of the organisation and its objectives, as the Chief Scientific Adviser will.
Lord Lansley (Con)
Before my noble friend moves off this particular point, he will know, and the Committee will have observed, that in paragraph 18 of Schedule 1 the Government are proposing to take a power to substitute somebody else or some other office for the Chief Scientific Adviser. What my noble friend was just saying gave me the impression that this is something that might be contemplated in circumstances where the two roles that he refers to are held separately.
Lord Callanan (Con)
That is the exact point. At the moment they are occupied by the same person, but at some point in the future there might be other arrangements. It is just to ensure that the Secretary of State has the maximum flexibility.
I turn to the recruitment and appointment of ARIA’s board members. I am happy to confirm to the noble Lord, Lord Davies, that we will of course follow the normal and usual procedures for the appointment of directors and non-executive directors of public bodies. Amendment 6 seeks to disqualify a non-executive member if the individual has been a Minister of the Crown or a person employed by a government department. While I understand that the likely intention of this amendment—which will perhaps make my noble friend Lady Noakes and some of the contributors on this grouping unpopular—is to ensure that we have the highest calibre of individuals represented on ARIA’s board, I believe it could have the opposite effect. It would undermine the Secretary of State’s ability to run an open and fair recruitment process, as it would narrow the search field on a somewhat arbitrary basis. It could also prevent the appointment of an individual with demonstrable scientific or technical experience—some of whom may well be in this Room today—just because that individual had served in public office or as a civil servant. That seems very unfair to me, and I see no obvious logical reason for depriving ARIA of such expertise.
Amendments 5 and 7 would require the Secretary of State to inform the Commons Science and Technology Committee before appointing ARIA’s first CEO and chair, and to make arrangements should the committee wish to call them for evidence. As noble Lords are aware, we are currently recruiting for the CEO role. We will launch the chairman recruitment following the conclusion of that process, so that we are able to recruit the right person to work alongside the CEO as a complementary leadership team. I can confirm that we will of course write to the committee on the announcement of both positions; it may then choose to invite the appointee to give evidence to it on their vision and functions in ARIA. I strongly submit that it is not for the Government or Parliament to specify in legislation what a Select Committee should or should not do. It is perfectly capable of deciding for itself whether it wishes to summon individuals to give evidence—or not, as the case may be. Given the robust appointment process and the committee’s standing powers to invite witnesses to give evidence, I really believe that a special provision in legislation for a pre-appointment hearing is not necessary.
I acknowledge that the balance between giving ARIA the autonomy that I think everybody here is agreed it should have and ensuring a certain amount of accountability to government, the National Audit Office, et cetera, is an issue on which noble Lords will hold different views. It is a difficult balance to strike, but I hope that I have been able to convey to the Committee why we believe we have the correct balance as it stands. On that basis, I hope noble Lords will not press their amendments.
Lord Fox (LD)
I asked some specific questions about the future legal structure of ARIA and the nature of who its members are. I do not think the Minister had time to answer.
Lord Callanan (Con)
I will write to the noble Lord with the legal details he requires.
Baroness Noakes (Con)
My Lords, I can probably help the noble Lord, Lord Fox. In the case of public corporations created by statute, it is quite common that they are the members. It is not usually drafted as if the board is a separate legal entity.
Baroness Noakes (Con)
No, the members. The members are executive and non-executive, as defined. They comprise the body. That is quite normal in public sector formulations. While I referred to the board when I introduced my amendments, that is not set out in legislation because they are the members. In common parlance, I was talking about the creation of the board of the agency.
I thank noble Lords for their support and their contributions to this short debate, and I welcome the noble Lord, Lord Morse, to our deliberations. I heard what the Minister had to say. He has decided that there will be four executives and therefore a minimum board size of nine, but I do not think he really engaged with the substance of my arguments on why the potential for 15—or, indeed, more because the Bill does not limit the size of the board to 15—which was a little disappointing.
When the Minister dealt with whether or not there could be payments for pensions or gratuities to non-executives, he said that the Government do not intend to do that but are going to put it in anyway. Actually, this is really old drafting, which I can point to in many old statutes, which have not been used for many years, for very good reason, and there really is no need to carry on drafting in this way.
I could go on but I am not going to answer the individual points made by the Minister in response to my speech. I hope he will go away and read more carefully the content of the debate because I think there are some issues that he did not deal with in his reply, and I will certainly read his remarks more carefully when I see them in Hansard. I anticipate returning to some of these issues on Report. In the meantime, I beg leave to withdraw my amendment.
Baroness Randerson
“(ba) a representative of the Welsh Government,(bb) a representative of the Scottish Government,(bc) a representative of the Northern Ireland Executive, and”Member’s explanatory statement
This amendment would require representation from the devolved administrations on ARIA.
Baroness Randerson (LD)
My Lords, I start by declaring an interest as chancellor of Cardiff University. Given the current climate, I think I need to make it clear that it is an unremunerated role.
The amendments in this group deal, in one way or another, with the representation within ARIA of the interests of the nations and regions of the UK. My Amendment 4 seeks to gain some clarification from the Government—it is, of course, a probing amendment —as to the purposes and modus operandi of ARIA, and to make the point that because it will operate within areas of devolved competence, it must listen to the voices of the devolved nations.
As it stands, it is difficult to get a handle on exactly how ARIA will operate. The list of things it is able to do is comprehensive. It can take an equity stake, carry out its own lab work, contract with an academic or industry team, create prototypes, market products, convene conferences, operate outside the UK—and a whole lot more. It is to be granted great freedom and there is, as noble Lords have said, an emphasis on lack of bureaucracy. It is to be ambitious and tolerant of failure.
In the debate in the other place, Greg Clark MP, chair of the Science and Technology Committee, complained that it was not clear whether the emphasis would be on “blue-sky research” or whether it would turn existing ideas into “practical applications”. Clause 2(6) says:
“ARIA must have regard to the desirability of … contributing to economic growth, or an economic benefit, in the United Kingdom”
and
“improving the quality of life in the United Kingdom (or in the United Kingdom and elsewhere)”.
These are worthy thoughts but there is no obligation to take account of the nations and regions of the UK.
The funding of ARIA directly by the UK Government impacts on devolved powers in relation to higher education and economic development. The Bill creates a new reservation in respect of research and innovation. I accept that this is not altogether new, because there is already a reservation for UKRI, and there is indeed great strength in not having research silos. Partnership is vital, both within and across the UK and internationally: partnership between universities—where most blue-sky research originates—and between universities and commercial companies, which exploit that research. To amend the Bill to spell out that there must also be partnership between the UK Government and the devolved Governments will simply strengthen ARIA.
Baroness Chapman of Darlington (Lab)
It is a pleasure to follow the noble Baroness. I have a lot of sympathy for what she says and would be very happy to support her proposal. I will speak briefly to Amendments 9, 23, 29, 33 and 34 in my name. Trying to make sure that efforts to address regional inequality run through everything the Government do is a bit of an obsession for us. We know that investment in science brings prestige to local areas and supports quality jobs when projects succeed. It is a source of immense local pride.
Amendment 4, moved by the noble Baroness, Lady Randerson, requires representation from the devolved Administrations of Wales, Scotland and Northern Ireland. I completely understand where she is coming from. We are very keen to nail down in some way through the Bill a commitment to ensure that there is representation and fairness across regions. ARIA should be mindful of regional inequality when making its decisions, including, importantly—the Minister might comment on this—where it chooses to base itself. When she sums up at the end, can the noble Baroness indicate whether she has had any discussions with the Welsh Government or in Scotland about how they feel about taking part in the way she proposes? Are they seeking to do that? Has she thought about including some of the English regional mayors, who might also have a role to play?
I can sense the Minister thinking, “Oh my goodness, what are you trying to do to my new agency?”, in involving all these people, but the point we are trying to make is that this cannot have an ivory tower attitude. It needs to take its responsibility to the prosperity of the entire UK, as all government agencies should, very seriously. One way or another, we need to do everything we can to make sure that what the Government would call levelling up runs through everything they do, including ARIA. This is not just about special projects which can be promised and then quite easily taken away; this needs to be a golden thread that runs through this agency and others.
This is not just about the north-east, although it is certainly very important for the north-east. Every region ought to expect that it will benefit from the creation of ARIA. Where I come from, in the Tees Valley, we have a particular talent for oil, gas and energy, and we are starting to specialise in renewables. The benefits of ARIA’s activity could support not just existing ventures but the development of skills in those fields.
My Amendment 9 would allow ARIA to establish committees in specific regions of the UK. I have tabled it to reflect the importance of considering the benefits to regions of ARIA’s activities. Amendment 23 adds to the list of ARIA’s functions so that, as well as
“contributing to economic growth, or an economic benefit, in the United Kingdom,”
as it says in Clause 2(6)(a), it should
“have regard to the desirability of … increasing prosperity across each region of England, Scotland, Wales and Northern Ireland”.
I do not really understand why the Minister would not want to include that.
Amendment 29 would allow the Secretary of State to stipulate that certain grants must be used to support activity in particular regions. I am aware that that would definitely fall into the category of interference from politicians but sometimes, unless we tease this out and put on the record how important these issues are to us, they can become less important and be missed.
Amendment 33 would establish an advisory board to ensure that ARIA supports the reduction of inequalities between each region and nation of the UK. The point I really to make through Amendment 34 is that ARIA should measure and report on what it is spending by region, which is not an unusual request. I accept that this does not have to be in the Bill, but I would like to know what the Minister thinks about it and whether he would be prepared to agree that ARIA should share information in this format. When the annual report is published, readers could obviously do their own analysis and work out what has been spent in which region. However, I think we have learned from reporting on gender and other issues that if something is measured and required to be reported on, it is seen as important and as a priority, and that then flows through into decision-making. I just want to test what the Minister thinks about these proposals in general, if not any of the specific amendments. This is an issue that we will want to return to on this Bill and others as well.
Viscount Stansgate (Lab)
My Lords, I rise briefly to support the noble Baroness, Lady Randerson, in her Amendment 4 and to speak to the sentiments behind my noble friend’s Amendment 23. I have discovered that, in this Committee this afternoon, there are really two ways of dealing with amendments. One is by tabling them in time and having them printed, and the other is by speaking to them having written but not tabled them. So it is my pleasure to say to the noble Baroness that I drafted several amendments about the very point that is made in Amendment 4. I drafted a range, one of which went further than that of the noble Baroness by saying that the appointments should be made by the Welsh Government, the Scottish Government and the Northern Ireland Assembly, not on their behalf.
When the Minister comes to reply, I gently suggest that the Government must not allow ARIA to be seen as some golden triangle element. It would be fatal to its prospects of success if it is seen in that way, especially if its headquarters happen to be anywhere within a line surrounding Oxford, Cambridge and London; that would be a tactical mistake. I genuinely put it to the Government that, whatever the language of the Bill, they must have some regard to the United Kingdom as a whole and allow the four nations to feel that they are fully represented and involved in its work.
Lord Broers (CB)
My Lords, I support our using our full capabilities across the regions; however, while they should all be represented, we have to be careful in trying to spread everything all over the place. I cite a specific example that has been important to British industry. In the 1960s, several people, including myself and Sir Eric Ash, who was then head of electrical engineering at UCL and went on to be rector of Imperial College, tried to co-ordinate the semiconductor industries in this country. At that time, America also had a problem as it looked like Japan was going to take the semiconductor business, run away with it and leave everybody else behind. In America, Ronald Reagan got together with industry and formed Sematech, in Texas, which sort of saved them. The industries all got together and worked.
When we tried to do it, it was too difficult, because there were efforts in Edinburgh, Southampton, London, Cambridge, Newport and Manchester. Nobody realised that we had to co-ordinate those efforts in a rather tight way that also perhaps meant putting things in one location.
At that time the Belgian Government saw the possibility and a few leaders there, Roger van Overstraeten chief among them, decided that they would have a shot at doing this in Belgium. That institute now has 4,000 people and an annual budget roughly equal to ARIA’s: €600 million. We could have done it. We had more talent at the beginning but we could not get around to facing the fact that in certain instances, proximity is very important if you want to pull off really high-technology advances. Again, this is a world issue. America has had to wake up its industry again and realise that it is not necessarily good for the world for Taiwan and South Korea to dominate; it would be a rather dangerous thing. So I think American industry is going to be reawakened.
I say a word of caution: while we want to draw from all of the regions, we may not be able to do some of the big projects spread out over the regions.
Baroness Noakes (Con)
My Lords, I will comment on Amendment 4 in the name of the noble Baroness, Lady Randerson. We must not lose sight of the fact that the board is there to contribute to the total purpose or mission of the organisation, and we need to be very clear, when looking at getting those with some relationship to the devolved Administrations, precisely why they are there. I question whether there is a devolved dimension to, for example, the focus of ARIA or determinations about particular projects. These should transcend any issues that arise at the national level.
In addition, the amendment says that there should be
“a representative of the Welsh Government”.
I believe very strongly that boards should not have representatives of anybody on them. Board members should be selected because of their contribution to the totality. Indeed, if we look at examples of boards that do have individuals nominated either by or with the consent of the devolved Administrations, those people are never ever drafted as representatives. They are usually drafted as members who are appointed in a particular way. It is really important that we do not lose sight of the fact that we are trying to create a unitary board dedicated to the mission of the organisation. I query whether there needs to be input from the devolved nations to that process because of the nature of ARIA, but even if there were, I am absolutely clear that they should not be “representatives”.
Furthermore, if we look at the size of the board, which I addressed in the previous group of amendments, if there are four executives there are likely to be five non-executives, and that includes the chairman. So there would be a chairman, four executives and three people appointed who are in some ways related to the devolved Administrations—although none, under this formulation, representing England—but none, or perhaps one, appointed for the general skills and abilities they bring to the party. I hope that noble Lords will think carefully about whether it is appropriate in this instance to act in accordance with the way the noble Baroness’s amendment is drafted.
Lord Ravensdale (CB)
My Lords, as co-chair of the Midlands Engine APPG, I am very supportive of the levelling-up agenda and have a lot of sympathy with the amendments in the name of the noble Baroness, Lady Chapman. My only concern is the additional bureaucracy inherent in looking at the regional distribution of investment.
Building on the point made by the noble Viscount, Lord Stansgate, another lesson learned from DARPA was that the headquarters of DARPA was located away from many of the main research centres of the United States, which avoided the inevitable capture of research funding by institutions in a particular area and really encouraged the take-up of ideas from all parts of the country. I thank the Minister for writing to me on this but I hope that the Government will look further at how the location of the ARIA headquarters fits into the levelling-up agenda.
Baroness Bennett of Manor Castle (GP)
My Lords, I offer Green support for the intention of all these amendments, although I agree with the noble Baroness, Lady Noakes, that “representative” is not quite the right approach. Ideally, we would see the devolved Administrations and Westminster getting together to ensure that there was representation from the nations that fitted together in terms of making a cohesive board with the right set and range of skills, and it would be a co-operative process that ensured that we had those nations involved.
I was very taken with the comment by the noble Baroness, Lady Randerson, about the “magic inner circle”. That is something that we absolutely have to break up when it comes to innovation and new thinking in the UK. Just because it seems to fit here, we need to make sure that we are drawing on not just a handful of the most well-funded and well-resourced higher education institutions but on all our higher education institutions. We also need to think about what further education institutions, of which there are many around the country, may be able to offer.
On that issue, I want to reinforce the points made by the noble Baroness, Lady Chapman, and the noble Viscount, Lord Stansgate, about where this will be based. I do not know whether the Minister will be able to do this now or possibly at some point in future, but I think the Committee would be greatly reassured if she could tell us that it will not be in the Oxford-Cambridge-London triangle but somewhere else.
Lord Browne of Ladyton (Lab)
My Lords, I want to express the hope that the Minister is going to tell the Committee that consultations have taken place with the Scottish Government, the Welsh Government and whoever the appropriate people are presently to represent the people of Northern Ireland about the issues raised by Amendment 4, and that she can satisfy the Committee that this has all been agreed. If not, I can tell her that it has the potential to be quite a serious issue in Scotland.
Lord Fox (LD)
My Lords, this has been an interesting debate. I fully associate myself with the words of my noble friend Lady Randerson. To put it plainly, we have heard around the Committee a strong feeling that the nations of the United Kingdom have to be fully engaged in this agency in some way, although, to echo the last speaker, the way in which that can be worked through is something we can all be flexible about. I think we all look forward to the debate on Amendments 37 and 40 to hear what the Government's thinking is about those.
On Amendment 9, having some eyes and ears around the regions as well as the nations is essential. Regarding most of the amendments from the noble Baroness, Lady Chapman, she is right to stress that inequality is a central issue and it should be a focus of what we do. However, I would point out that while a lot of people have mentioned London in the context of being rich and well funded, it is not just a matter of region because within a region there can be huge variation. I shall use the example of the London Borough of Tower Hamlets, which I declare I have a home in. There we have some of the richest people and some of the most deprived living a few yards apart.
The noble Lord, Lord Ravensdale, raised the issue of HQ locations. Some noble Lords may know that the European Medicines Agency was due to go into Tower Hamlets but now, for reasons they will all know, it is not. So I will mention that I am supporting the campaign by my colleague in Tower Hamlets, councillor Rabina Khan, to locate ARIA in Tower Hamlets and take the place of the European Medicines Agency. It would be a good development around there and something that I think would be very constructive.
Although I do not fully agree with the wording of the amendments from the noble Baroness, Lady Chapman, I think there is a sense in there that we need to get a hold of. How does this agency engage? How does it not become isolated in the golden triangle or somewhere else? That is the question to which we seek some response from the Minister. That is the issue we will take to Report, whether in amendments such as this or in a new version that seeks to make sure we have engagement across the whole country, national or regional.
Baroness Bloomfield of Hinton Waldrist (Con)
My Lords, I thank the noble Baroness, Lady Randerson, for her remarks on these amendments. Many points were raised that I agree with, including a number from the noble Baroness, Lady Chapman. I will address the different elements of this group in turn.
First, I should be clear that it is absolutely the Government’s intention that ARIA increases prosperity across England, Wales, Scotland and Northern Ireland. This is reflected in ARIA’s existing functions, which require it to have regard to contributing to economic growth or economic benefit in the UK or, for example, improving the quality of life. There is no need for specific additional powers to allow ARIA to operate regionally; the Bill as it stands already allows ARIA to do so. Addressing regional inequality is at the heart of our levelling-up agenda and innovation strategy, driving greater benefits from our R&D system to more places across the UK.
I will now address head-on the proposed location of ARIA, because there is none. No decision on the location of these offices has been taken. As a funder, the contribution the new agency makes will result from its project portfolio and funding decisions; it is not an infrastructure project. ARIA will have only a small physical presence at its headquarters, the location of which will probably not be agreed until the appointment of the chief executive officer. That may have some bearing on where it is to be located. I cannot make the commitment that it will not be based in the London-Cambridge-Oxford arc, but that is not our intention at this stage. We have a completely open mind as to its location.
Amendment 23 would impose a new duty and reporting obligations on ARIA in this regard. It is my view that these system-wide ambitions should not be the statutory responsibility of a small new agency that represents about 1% of UK R&D spending. As we have stated previously, UKRI is the public R&D funder with system-wide responsibilities. Tackling systemic issues, such as the overall regional distribution of R&D funding, falls firmly within the UKRI remit.
ARIA’s purpose is to pursue the most ambitious research and innovation projects, where the benefits are long-term and uncertain, wherever in the country they are located. ARIA should not be subject to the political priorities of the Government of the day, no matter how long-standing or important those priorities might be. I believe that seeking to quantify its economic impact in every region of the UK and submitting that for outside assessment, under the shadow of this statutory obligation, would incentivise exactly the same risk-intolerant approach that we are seeking to liberate ARIA from.
We are in danger of expecting ARIA to spread itself too thinly, against the recommendation of the Royal Society and the House of Commons Science and Technology Committee that it focus on a very limited number of programmes. ARIA cannot be expected to be active in all regions of the UK at once, so I suggest that Amendment 34 is not an appropriate obligation to place on the organisation.
We have spoken at length about the importance of providing ARIA with independence and equipping it to take risks and tolerate failure. A board appointed by the Secretary of State advising ARIA where to direct its funding represents an extraordinary level of political control over ARIA’s activities. It is completely inconsistent with the decisions on project-level spending being taken by technical experts based on a deep understanding of the relevant field and the scientific merits of the proposals.
In a similar vein, Amendment 4 looks to add a representative from each of the devolved Administrations to ARIA’s board. Ministers in Scotland, Wales and Northern Ireland are unanimous in their support for the important principle of ARIA’s independence. We have had close discussions with Ministers and officials at all levels in all three devolved Governments throughout the passage of the Bill.
We have agreed a mechanism for input with the devolved Governments which will be set out in an agreement between the four Administrations of the UK. The agreed text of this MoU will be shared before Report, but it is contingent on the government amendments we will come to discuss later. The final version signed by all parties will be published before Royal Assent. All four Administrations of the UK are committed to upholding the important principles of ARIA’s strategic autonomy, operational autonomy and minimal bureaucracy. Similarly, all are committed to facilitating ARIA’s seamless operation throughout the UK.
Baroness Randerson (LD)
I very much thank all noble Lords who have taken part in this discussion. I would say to the noble Baroness, Lady Chapman, that the Welsh Government indicated their concern at the current proposed structures—before the Government tabled their amendments—at the creation of a new reservation without mandated representation on ARIA’s governance. The Scottish Government also indicated that they are unlikely to grant a legislative consent Motion unless they have representation. Clearly, the Government have done a lot of work since these amendments were tabled. There are amendments to which I assume we will come next week, unless we work very fast this evening, and the current view of the Scottish and Welsh Governments will become clearer then.
I thank the Minister for the details she supplied. We will obviously know more about the MoU before Report. The amendments in this group have, however, enabled us to discuss an important set of issues. It is important that we do not confuse having a concern across the regions and nations with the idea that one would expect there to be growth everywhere. However, that highlights the need for this body, especially if it is a small body, not to be placed in the usual place with the usual suspects. It has a relatively modest amount of money to spend in the big scheme of things—it sounds like an awful lot of money, but in the big scheme of things, it will not transform things unless it is very well spent.
If the body is well placed and carefully placed, its location alone will bring kudos to that area. However, it is not precisely about where it is placed. It is about how it spends its money—which universities it invests its money in and which companies it establishes or invests in and where they are placed. That is very important indeed if the Government are going to fulfil their promises.
I will, of course, withdraw the amendment. I very much hope that the discussion we have had means that I will not have to bring back a version of it on Report. I agree with the noble Baroness, Lady Noakes, that “representative” is not the best term but it means that it represents an input for the devolved Administrations. That is what I was trying to indicate rather than that anyone on that body would behave as a delegated representative. With that, I will withdraw the amendment.
“(aa) produce a value for money study, and”Member’s explanatory statement
This amendment would ensure that the National Audit Office produces a value for money study of ARIA.
Baroness Chapman of Darlington (Lab)
I think this set of amendments really gets to the meat of our concerns. These amendments are all about transparency and the ability to scrutinise what ARIA does. I am pretty confident that we will return to this as the Bill progresses.
I will quickly run through the six amendments in my name in this group. Amendment 11 requires the NAO to produce
“a value for money study of ARIA.”
Since tabling this, I have spoken to the noble Lord, Lord Morse, who unfortunately has had to leave us. He says that this can be incorporated into the usual audit. Can the Minister confirm this? In that case, I would be very happy to agree that this amendment would not be necessary.
Amendment 12 would ensure that the annual report includes
“a list of all projects supported in the financial year.”
This is the least we should be asking for. I thank the Minister for providing a draft SI that would require members of ARIA to disclose any relevant interests. That is helpful and welcome, but I am not quite sure what his sending it means. I note that he said in the email accompanying it that it is for illustrative purposes, so I do not quite understand what he is saying. Will members of ARIA be required to register their interests or not? Either way, without a published list of supported projects it is not possible to tell whether any published interest—if that is what the Minister is proposing; I am not sure that is what he is saying—conflicts with a decision of ARIA. We need to be able to make sure that it does not.
Amendment 13
“would ensure that the annual report includes whether any funds have been given by ARIA to companies which list members of Parliament in their company registers.”
Given recent events, it is probably obvious to noble Lords why this amendment has been tabled. We are keen to ensure that parliamentarians do not lobby for companies in which they have an interest and which then become beneficiaries of grants from ARIA. It is very obvious why we want to do that at this point. I accept that the register could be cross-checked with the list of grants awarded but it is far more transparent and straightforward if the existence of any recorded interest could be highlighted in the report that ARIA makes itself. I assume it would be helpful to the board of ARIA too to be aware of any such interests so that it can take them into account and assure itself that the proper processes are being followed.
Amendment 14 would ensure that the annual report includes whether any funds have been given by ARIA to companies listed in the Electoral Commission’s register of donations and loans to political parties. Similarly to the last amendment, this one would help ARIA to assure itself that no lobbying or purchasing of influence could possibly have taken place.
Amendment 15 would ensure that a Minister of the Crown must make a Statement to both Houses of Parliament on its annual report. This is important because, as we said on the first group of amendments, MPs and Peers would be interested in a project supported by the public purse. Ministers should see this as an opportunity to promote the work of ARIA and to celebrate the inventions and research projects made possible by the agency. Of course, there are bound to be awkward questions—when are there not?—arising from projects that have not worked. But Ministers should not worry about that, as they can argue that the risk is built in, that Parliament has agreed and understood, that many ideas will fail, at least initially, and that we have supported that approach. We want adventurous research, but many of us want to know what is being done. That is because we are curious, supportive and interested in this area of activity, and we want a chance to discuss it.
I shall leave the noble Lord, Lord Ravensdale, to speak on his Amendment 16, but I indicate our support for that as well. Developing an environmental and social governance strategy is a really good idea and may address many of the concerns that I have had previously about regional inequality. ARIA is in any case going to have to devise a decision-making process and criteria to help it make its decisions, so an environmental and social governance strategy could be very helpful, I imagine, in teasing out a means by which ARIA can ensure maximum benefits in relation to our desire to combat climate change and reduce regional inequality. We would be very happy to support that.
Lord Ravensdale (CB)
My Lords, I shall speak to Amendment 16 in my name. I thank the noble Lord, Lord Browne, for his support with this amendment and the noble Baroness, Lady Chapman, for the support she indicated.
This amendment is closely related to the sustainability amendments that I discussed in the first group. The arguments made there on alignment of ARIA with these objectives apply, so I shall not repeat them here. It simply calls for ARIA to develop its own environmental, social and governance strategy to consider the impacts of the exercise of its functions and the projects that it funds. It is another means of embedding climate and sustainability considerations in the organisation, alongside my Amendments 1 and 26 and Amendment 21. It would allow the board of ARIA to consider its own strategy for alignment with environmental and climate goals, so it is consistent with the other amendments.
Embedding sustainability goals in the governance structures of organisations is increasingly important to ensure that organisations consider the impact of their operations and set clear and measurable goals. That ties into a point that I made earlier about considering environment and net zero as a system: there is a need to embed climate considerations across all companies and all public bodies to ensure that our overall goals are met.
ESG strategies are increasingly common across public and private companies, as noble Lords will be aware. I note that other government-created bodies are developing ESG strategies. For example, the Financial Conduct Authority has recently published an ESG strategy, and the national infrastructure bank has a requirement to develop an ESG strategy in its framework documents. Bringing ARIA in line with other government organisations would again ensure consistency and its playing its part in the principal strategic goal of the nation.
Lord Browne of Ladyton (Lab)
My Lords, I shall talk to Amendment 16, which I am hopeful that the Minister will tell us is unnecessary. I also strongly support my noble friend Lady Chapman in the amendments she has tabled, and I shall speak to that shortly.
I support Amendment 16 simply because, in today’s global arena, setting an environmental, social and governance strategy is seen as an important benchmark for how responsible organisations operate. This will be a responsible organisation and should comply with the norm that is increasingly being imposed on all organisations that operate in the economic environment.
Lord Lansley (Con)
The noble Lord was chastising the Explanatory Notes earlier for not explaining. On this occasion, I think the Explanatory Notes explain that the purpose of paragraph 11 of Schedule 3 is to exclude ARIA from the application of the Public Contracts Regulations. It does not include them.
Lord Browne of Ladyton (Lab)
I apologise for wasting the Grand Committee’s time. I go back to the simple argument I made in relation to Amendment 16; in today’s global arena, setting an environmental, social and governance strategy is seen as an important benchmark of how a responsible organisation operates. This will be a responsible organisation, so it should therefore have that obligation. I do not understand why it should be excluded from passing that obligation on to people to whom it gives public money.
Viscount Stansgate (Lab)
My Lords, I support my noble friend Lady Chapman’s Amendment 11 in particular, as well as others such as Amendment 15.
On value for money, I would like the Grand Committee to imagine the circumstances in 2026 when there is a massive row about something that ARIA has done, the chair of the Public Accounts Committee holds an evidence session and the National Audit Office is brought in, as it would be, to look at what went wrong. I am drawn to refer to this potential future situation because of advice that the NAO itself gave to the Select Committee in the House of Commons when it was first considering what, by the way, the Government then called ARPA.
I shall refer briefly to some of the areas that the National Audit Office says it would consider when it comes to considering the value for money in an organisation like ARIA. Its briefing says:
“Based on our experience, we would normally look for … a clear statement of the ultimate policy objectives – readily understandable to those charged with running the organisation and to those holding the organisation to account … a statement of what success will look like into the future – short, medium and longer term – which is particularly important for programmes where ultimate success may take years to realise … a roadmap which sets out the steps to deliver success along with a realistic assessment of the resources required and their timing – our work frequently points to a risk of optimism bias at the start of new programmes … a clear agreed sense of how risk should be managed, including the organisation’s and sponsoring department’s appetite to tolerate failure in pursuit of the objectives; and … an agreed approach to considering progress towards meeting the objectives.”
My point in raising this is to ask the Minister whether he will make some comment in his reply on the role of the National Audit Office in the running of ARIA and whether indeed it is expected to produce a value-for-money report.
Baroness Noakes (Con)
My Lords, I can probably help the noble Viscount. It is a shame that the noble Lord, Lord Morse, has not stayed with us. I think what I am about to say was referred to in the opening remarks of the noble Baroness, Lady Chapman.
Because the Comptroller and Auditor-General is specified as the person to examine, certify and report on the statement of accounts, the National Audit Act 1983 gives the Comptroller and Auditor-General the power to do value-for-money audits in the way that the National Audit Office does for all government and public departments. The power therefore already exists and there is no need for Amendment 11, as I think the noble Baroness herself conceded; it is simply not an issue. A power for the Comptroller and Auditor-General to carry out a value-for-money audit will exist and the audit will be carried out in the normal way that the National Audit Office undertakes its value-for-money audits.
Lord Fox (LD)
Again, this is an interesting group of amendments, and the noble Baroness, Lady Chapman, and the noble Lord, Lord Ravensdale, should be congratulated on tabling them. Bearing in mind what the noble Baroness, Lady Noakes, has just said, I was already planning to focus on Amendments 12, 13 and 14 and not to talk to Amendment 11, and that is probably a good idea.
However, I say to the noble Lord, Lord Browne, that I do not think his work was wasted because one way or another he has managed to uncover the fact that the Government have decided deliberately to exclude this requirement that they expect every other central government purchase to meet. The Minister has a serious question to answer as to why that is being left out.
Amendments 12, 13 and 14 cover an important issue. I do not think we need to underline, after the week or 10 days that we have just had, why it is in the interests of ARIA itself for it to be seen that there is no conflict and there are no issues around where the money is being spent. In a sense, these amendments or versions of them, will help ARIA in its own housekeeping. Of course, the Electoral Commission will register donors. As the noble Baroness, Lady Chapman says, we then need a list of all the companies and then to go to Companies House to find out who is registered as being in control of those companies. Making it easier also makes it clearer to the ARIA administration what it is dealing with.
I go back to the statutory instrument that we are not debating today, which talks about conflict of interest—so it is clearly relevant. It says that a member of ARIA must disclose any “relevant interests” promptly on appointment. The trouble with that is that I do not think that many people can consider their donations to be a relevant interest, but they are relevant with respect to an organisation of this nature. So something clearer needs to be spelled out, either in the statutory instrument or in the primary legislation. I would prefer it to be in the primary legislation.
When that is done, in listing the companies that are being supported, I suspect that the Minister is going to stand up, in the same way as he is going to stand up when we debate the freedom of information stuff, and say, “This work needs to be kept under wraps and kept secret”. There is a balance to run on this, and if there is an issue we need to find a third-party agency to scrutinise it on behalf of Parliament. But to hide specifically through national security or proprietorial security is wrong, because in that darkness—even if abuses are not happening—the perception of abuse will happen, which will harm ARIA before it even starts.
Lord Broers (CB)
I have just a word of disagreement on some of this. Short-termism has been our problem; we must keep the timescales long enough. If you keep pulling the plant up and looking at the roots, it will not grow. On the other hand, one thing that we should practise from the beginning is what is in Amendment 16 from the noble Lord, Lord Ravensdale. The one thing that technologists have made a mistake on in the last decade or two is not to bring social scientists in early, to really look at the implications of what their technology will do. I strongly support that amendment, but I have severe reservations about the others.
Lord Callanan (Con)
I thank noble Lords who have contributed. These amendments relate to ARIA’s annual report and to other information to be provided to Parliament. As set out in Schedule 1, ARIA’s accounts must be prepared annually, alongside an annual report, which it will send to the Secretary of State, who must lay the report in Parliament.
Addressing Amendment 11 first, I am happy to assure the noble Baroness that ARIA will be audited by the National Audit Office—and I reassure the noble Viscount, Lord Stansgate, on that as well. The point was also well made by my noble friend Lady Noakes that the National Audit Office will be able to conduct value-for-money examinations of ARIA; the National Audit Office never shows any reticence to do precisely that. Indeed, it is able to do that as per the National Audit Act 1983 in the usual way, and the same controls apply to many other public organisations. As some of my spending schemes, within my responsibility, have been subject to National Audit Office examinations, I can assure noble Lords that it is extremely rigorous, as indeed it should be.
Other amendments relate to the specific contents of ARIA’s annual report. I agree on the importance of robust transparency and reporting arrangements in this regard. That is why ARIA’s annual report will align with the Government Financial Reporting Manual, which, for example, could require ARIA to publish information on its aims and achievements, performance, organisational structure, corporate governance and accountability.
On the list of projects that was asked for in Amendment 12 by the noble Baroness, Lady Chapman, publishing a list of delivery partners is not one, in my view, for primary legislation. The details of the annual report will be part of the framework document and, of course, the annual accounts will provide details of exactly where ARIA spends its money.
Baroness Chapman of Darlington (Lab)
I thank the Minister for what he said, but if he thinks that this is some short-lived political campaign on my part, he is mistaken. The issues of the potential for conflict of interest and the need to protect ARIA from accusations of cronyism were raised in the other place before the Summer Recess and they are certainly not a reaction to the current crisis in which the Government find themselves, but we cannot pretend that that is not happening. I fear that the Government have not shown themselves in the best light this in recent days or weeks, and we feel that these protections are needed for the benefit of ARIA. This is not about making a political point or having a go at the Minister or the Government at all; it is about protecting something that we all sincerely hope works and changes lives in this country. That is what we are about here. If I thought that the assurances that the Minister just gave were sufficient, I would certainly be happy not to return to this. Of course, I withdraw the amendment for today, but we will be coming back to this.
Baroness Noakes
Baroness Noakes (Con)
My Lords, I beg to move Amendment 17 and shall speak also to Amendment 20 in this group. These are probing amendments designed to explore the extent of the powers given to ARIA by virtue of paragraph 17 of Schedule 1. Sub-paragraph (1) of paragraph 17 says that ARIA can pretty well do what it likes, and this is expanded by some particular powers in sub-paragraph (2). The two I have focused on in my amendment are sub-paragraph (2)(a), which says that ARIA may borrow money, and sub-paragraph (2)(d), which allows ARIA to form and participate in partnerships and joint ventures.
My concern is that these powers will be used to create liabilities for the state and hence, ultimately, for taxpayers, beyond the resources that we were led to believe would be devoted to ARIA. As I remarked on Second Reading, there is a world of difference between placing a bet of £500 million or £800 million and underwriting someone else’s credit card. In the former case, there is the hope of winning very much more than the initial £500 million or £800 million, although, obviously, the possibility of losing the lot. In the latter case, there is the possibility of an unlimited amount of additional money being needed if the funds raised by the borrower failed to produce any return.
ARIA will be a public sector body in every sense of the term. It gets its money from the Treasury, it is subject to public sector audit and accountability arrangements and its key personnel are appointed by and paid in accordance with the directions of the Secretary of State. It is always accepted that the state stands behind public sector bodies. That has been the case for as long as I can remember. If they fail, their liabilities are underwritten by the state. That is why there is usually a raft of controls placed on those bodies, including restrictions on the power to borrow money. The Treasury has an obvious interest in ensuring that public sector bodies do not create uncontrolled demands on public finances and, as a public sector body, ARIA’s borrowing will, I believe, automatically score as public sector borrowing. Will the Treasury really allow that to happen without controls?
I have focused on the borrowing power in sub-paragraph (2)(a), but my comments apply also to the ability to participate in partnerships and joint ventures, which are often structured in a way that means liabilities can be left with one of the parties to the venture. Private-sector counterparties would be queueing up to enter into arrangements which could possibly leave the state with the requirement to pick up the bill for failure. Similar dangers also apply in relation to companies which are allowed to be formed under sub-paragraph (2)(e), but I failed to table its deletion for today’s debate. I am not against partnerships, companies or joint ventures; they all have a part to play in working with private sector organisations. What I am against is the ability of ARIA to enter into arrangements that impose potential financial burdens on government finances without any controls or consents being required.
As it stands, Schedule 1 might allow some ex post interventions once the Secretary of State became aware of things that cause financial concerns beyond the initial amounts of money committed to ARIA—£500 million by the end of this Parliament—but the main tool he has is an extremely blunt instrument because it is related to replacing the members of the board. Even here he is restricted, as under paragraph 6(3) he can sack non-executive members of the board on any grounds he “considers appropriate” but, to get rid of an executive member, his power under paragraph 5(2) is restricted to grounds of “national security”. The real villains are more likely to be the executives than the non-executives, but the Secretary of State’s powers to deal with those individuals are, perversely, concentrated on the non-executives.
The notes given to noble Lords on this side of the Committee for today’s groupings said that my amendments would limit ARIA’s novel funding mechanisms. That gives an insight into what these powers are about. They are positively designed to allow ARIA to go beyond the resource envelope that has been announced for it. Calling funding “novel” might sound progressive, innovative and all those good things that ARIA is said to be focused on, but to those of us who have been around financing for rather a long time, it just sounds like another way of doing things to get around rules and restrictions. That would be okay if there were not ultimately recourse to public funds, but the Bill does not require borrowing to be on a non-recourse basis. It leaves public finances at risk to an unspecified degree.
I look forward to hearing from my noble friend how she thinks this very real risk will be managed in practice and how the Government have concluded that ARIA’s powers are compatible with sound public finances. I beg to move.
Baroness Chapman of Darlington (Lab)
My Lords, I support the noble Baroness, Lady Noakes. I had not had the pleasure of hearing from her at such length as we have today, and I am very impressed by her contributions. The issue of borrowing money is a concern. There is clearly the potential for financial risk but also significant reputational risk when a level of borrowing might emerge that may seem unduly risky. I am concerned about that and interested in what the Minister will say to prevent that concern doing any damage to ARIA.
Lord Fox (LD)
My Lords, rarely have I got to the end of a speech by the noble Baroness, Lady Noakes, and been crying out for more. On her second amendment, I wanted to know what she had against partnerships and joint ventures. I do not think there was a clear under -standing as to why that is a particular concern, given that many research processes go ahead collaboratively as joint ventures, partnerships or co-projects. I am interested to know, because I am sure there is a good reason; I just do not know what it is. While we are talking about that amendment, I would be pleased if the Minister could confirm that, whatever relationship ARIA is putting together, the National Security and Investment Act applies. I assume that to be the case.
Baroness Bloomfield of Hinton Waldrist (Con)
My Lords, these amendments relate to ARIA’s supplementary funding powers—its ability to borrow and form and participate in partnerships and joint ventures. I will begin by clarifying some of the controls and rules that would govern ARIA exercising these powers and I hope I can find enough reassurance for my noble friend Lady Noakes here. She always starts a debate with a great deal of knowledge, so we always pay attention.
ARIA could only ever make use of a financial mechanism, such as borrowing, for the purpose of exercising its functions—to conduct scientific research and exploit and advance scientific knowledge. Any such activity would also be subject to conditions attached to grant funding provided by the Secretary of State under Clause 4. Any borrowing would also meet the stringent requirements and controls of HMT’s Managing Public Money, which sets conditions to ensure value for money. It would be agreed with Her Majesty’s Treasury in advance. This is part of a suite of non-legislative controls that exist on borrowing.
I also highlight that UKRI has the power to borrow. Mirroring that approach, it is reasonable for ARIA to have this full financial toolkit, as it may be appropriate for it to use in certain future circumstances. For example, one possible scenario in which borrowing may be useful would be if ARIA were to own a controlling stake in a subsidiary, which while partially government owned, aims to act with autonomy. Such an entity may want to borrow if purchasing a large capital asset, in order to resolve cash flow issues if an upfront payment were required.
On ARIA’s power to participate in partnerships and joint ventures, using this power ARIA could take an equity stake in a company forming around a new technology. This could provide a clear benefit in cases where the company is creating assets of strategic importance to the UK. On this point, I reassure the noble Lord, Lord Fox, that the National Security and Investment Act does indeed apply to all ARIA’s activities.
In another scenario, ARIA’s taking an equity stake in a company may help to crowd-in private sector interest, bringing in greater funding totals, lowering financial exposure and creating a clear pathway for the commercialisation of a technology. It is fundamental to the design of ARIA that it is able to innovate with different methods of funding high-risk research.
As I have made clear, appropriate checks are in place to ensure the Government can agree the details of any future borrowing activity, and the ability to engage in joint ventures will be an integral feature of ARIA’s full financial toolkit. I therefore see no reason the mechanisms available to ARIA should be limited through the Bill and I ask the noble Baroness to withdraw her amendment.
Baroness Noakes (Con)
My Lords, I thank all noble Lords who have taken part in the debate. I particularly thank the noble Baroness, Lady Chapman, not only for her kind words but for pointing out the reputational risk in addition to the financial risk. As an accountant, I tend to think of financial risk before anything else.
I should say to the noble Lord, Lord Fox, that I did not say that I was against joint ventures and partnerships; I said that they were fine and that it was just a question of the degree to which, through those mechanisms, additional liabilities could be taken on that would then end up on the public sector balance sheet. Often joint ventures and partnerships are structured in such a way that, through those vehicles, access to additional borrowing of various kinds, or quasi-borrowing, can then end up coming back. Those are the reasons why I was probing in relation to joint ventures and partnerships. I accept that in many types of arrangement they are a natural way to do business in this area.
I thank my noble friend the Minister for what she said. I think she said that conditions could be attached to grant funding—indeed, there is a sentence on that in the Explanatory Notes for whatever clause relates to grant funding, which I cannot remember at the moment—but no other details were provided on how that works. Is that prospective? Is it done every time that money is paid over? I do not understand how it will work. Once ARIA has got hold of the money and does not need any more grant funding at that point in time, what powers do the Government have over its further borrowing after that?
My noble friend also talked about managing public money. I do not have an encyclopaedic knowledge of that, but from memory I could not see how that related to the issue I was really raising—whether you can borrow money without Treasury consent, which is what is implied by the statute, with it ending up on the public balance sheet.
Baroness Bloomfield of Hinton Waldrist (Con)
Perhaps I could come back on that point. Any borrowing will be agreed with HMT in advance and will comply with the terms of managing public money, which requires that public sector organisations may borrow from the private sector only if the transaction delivers better value for money for the Exchequer as a whole.
Baroness Noakes (Con)
I think I understand what my noble friend is saying. It is then about seeing how managing public money bites on ARIA, which has an unconstrained power to borrow. I would like to think about that further, and perhaps my noble friend could explain alongside that how conditions attaching to grant funding work in practice. Who says what to whom, and when? Perhaps then I can understand the mechanics of that. I am sure that, if the Government have thought this through, she will be able to give me a comprehensive answer on how we are not letting ARIA go out into the world and bust the public sector borrowing requirement—even more than it is already bust. I beg leave to withdraw the amendment.
Lord Lansley
Lord Lansley (Con)
This group consists entirely of amendments in my name. Very helpfully, they have been grouped together so you do not have to hear from me too often. Helpfully, it also groups together amendments which, from my point of view, are about the way in which ARIA acquires, creates, disposes of, retains and shares intellectual property. That is what we are really on about in this group.
Amendment 18 is the simplest and least interesting of them. It bears on this same area of the Bill and the question of the supplementary powers. In Paragraph 17(2)(b), where the power is given to
“acquire and dispose of land”,
the amendment would add the words “and other property”. I may be told that it is unnecessary, but I am not quite sure that I understand why, and why land is referred to while other property is not. Very often in legislation, “land and other property” is referred to.
Amendment 19 is in the same part of the Bill. It adds a further provision, concerning the powers that ARIA would have in connection with the exercise of its functions, for it to be able to
“acquire and license intellectual property”.
Maybe it has the power to do that, but I am not quite sure why other things are referred to as being supplementary powers and why the acquisition and licensing of intellectual property should not be referenced here. The purpose of my amendments generally is to try to give ARIA as much flexibility as possible in the way in which it acquires and uses its intellectual property. This amendment would say that it has the power to acquire and license, so licensing would be a specific power that it was able to exercise.
Amendment 22 gets us back out of the schedule and on to page 2. This is the point at which, under Clause 2, ARIA may attach conditions to the financial support that it gives—so imagine the relationship between ARIA and researchers, institutes, bodies, companies or whoever. Some conditions are referenced in Clause 2(4) about financial support being repaid, property being restored or information being provided. In Amendment 22 I propose that we want to make it clear that intellectual property forms part of those conditions and that it may be held by ARIA itself under those conditions or shared with the beneficiaries of support, obviously in ways that it chooses. From my point of view, ARIA wants to be able to hold on to intellectual property in some circumstances; it definitely wants to be able to share it with the beneficiaries of support in others.
In this context, the beneficiaries of support could include researchers who themselves become part of ARIA for a time. As I mentioned at Second Reading, one of the most notable characteristics of the Laboratory of Molecular Biology, which used to be in my constituency, was that its researchers were able to generate, from very basic research, some applications that had substantial intellectual property value. For example, Greg Winter was at the Laboratory of Molecular Biology and made discoveries that led to monoclonal antibodies. If I remember correctly, he left LMB to form companies and exploit that, and then subsequently came back to LMB to do more research.
This is the kind of interchange that I suspect we want ARIA to be able to undertake. We want it to be able to bring people in and say, “We are going to share intellectual property with you. You will be able to exploit it and we will be able to exploit it. We can set up whatever arrangements are necessary in order to do this.” Amendment 22 would explicitly allow ARIA to enter into those sorts of arrangements with those who are the beneficiaries of its financial support and indeed those who are working directly for it as short-term researchers. The nature of the programme managers and researchers will generally be fixed term and quite short term.
Amendment 28 is in a slightly different part of the Bill—the part that the noble Lord, Lord Browne, was talking about earlier, concerning grants made by the Secretary of State to ARIA itself and the conditions that may be applied. I am suggesting that there should be conditions, but conditions that in this case allow the Secretary of State, having made grants to ARIA, to allow the agency, having acquired intellectual property and value out of that research, to retain and reinvest it. That is a potentially not insignificant provision. On some occasions, for example, the LMB was generating more by way of revenue back to the Medical Research Council than the Medical Research Council was giving it in grants. DARPA in America, if I understand correctly, was investing in messenger RNA for vaccine production from 2013 and that has led to Moderna, which has valuations in the tens of billions of dollars.
Lord Broers (CB)
My Lords, I compliment the noble Lord, Lord Lansley, on a lot of penetrating understanding of how ARIA will work. It will all be a matter of working with others and IP from others. Far more will come into ARIA than it will generate itself. It is all a matter of doing these deals. When DARPA was working on GPS, it needed technologies from everywhere; its genius was in pulling them all in, doing the deals and getting the whole thing co-ordinated and working. It was exactly the same with the internet and the vaccine. It is all to do with interacting with intellectual property. In the generation of intellectual property, leaving the benefits of it with the creators is what drives and motivates them to do it. I agree on the need to really think through the intellectual property relationships that ARIA will have with others.
Viscount Stansgate (Lab)
My Lords, may I ask the noble Lord a question, to be absolutely clear about his Amendment 22? Let us say that ARIA comes up with a fantastic invention. Would his amendment enable ARIA to vest the intellectual property of that invention, which might be worth millions, both in itself and in the researcher or researchers who were personally involved in discovering it?
Lord Lansley (Con)
The purpose of Amendment 22 —this is in the part of the Bill about what conditions ARIA might attach to its financial support—is to give ARIA the flexibility to attach whatever conditions it wishes. In some cases, it might give financial support and not seek to retain intellectual property, or it may enter into an arrangement which says that it retains all the intellectual property, or somewhere in between. However, that is for the circumstances of the individual project rather than something mandated in legislation.
Lord Fox (LD)
My Lords, the more I look at this and listen to the wisdom of the noble Lord, Lord Lansley, and, previously, the noble Baroness, Lady Noakes, the more curious paragraph 17(2) of Schedule 1 becomes, because of both what is in it and what is not. I am prepared to accept the thesis of the noble Lord, Lord Lansley, that “and other property” would add some copper plating to it.
I hark back to the end of the response of the noble Lord, Lord Callanan, at Second Reading, where I popped up and asked a question about property. The Minister was clear that this would include ARIA purchasing pieces of research equipment. Research equipment can run to many tens, if not hundreds, of thousands of pounds—at least as much as property—yet, somehow, that does not appear to be on this list either. There is perhaps work to be done to understand the objective of this list. I am sure that the Minister will say that it is to afford ARIA the amount of freedom that it needs, but it seems to be quite a selective list, and I wonder what it was based on in the first place.
I turn to the other amendments before us and suggest that perhaps the most important is Amendment 28. It is a great shame that, because of a prior appointment, my noble friend Lord Clement-Jones was not able to be here for this section at least because, when it comes to intellectual property, most of us know that he has a strong expertise. I know that he will read very closely the Hansard report of this and, far from marking the homework of the noble Lord, Lord Lansley, I am sure that it will be the Minister’s homework that he will be marking. I hope that we can return to it.
Looking at Amendment 28, it seems eminently sensible to legislate for success, because we want this to succeed. If this succeeds, there should be a flow of revenue coming back into ARIA. We need to understand that this will not then become a cash cow for other parts of BEIS or indeed the Treasury. What this amendment therefore seeks to do—and, I think, would achieve—is to put that ring-fence in place; for that, the noble Lord, Lord Lansley, should be congratulated.
Lord Browne of Ladyton (Lab)
My Lords, for the second time today I am grateful to the noble Lord, Lord Lansley—the first was for saving me before the Minister had to expose my misunderstanding of a part of the Bill. He revealed, as the noble Lord, Lord Fox, pointed out, an even more fruitful argument for later in the consideration of this Bill, which I will look at more carefully.
I am grateful to the noble Lord for drawing my attention to the specific provisions of paragraph 17 of Schedule 1. When I read it, I honestly do not understand the purpose of paragraph 17(2) at all, unless these powers are not included in what is I think the most expansive and limitless description of powers that I have ever seen anywhere. In paragraph 17(1), ARIA is given powers to do
“anything which appears to it to be necessary or expedient for the purpose of, or in connection with, the exercise of its functions.”
There does not seem to be any point in trying to list anything. I tried to see if there was anything in common with these particular powers that required them to be expressly described, and I may find out that that is right when the Minister responds.
I am also grateful to the noble Lord for opening up this issue of intellectual property, because it was my concerns about where the intellectual property may end up that caused me to table Amendment 30. It is against the recent experience of practice that has developed in this country of businesses with intellectual property that has been developed by public funds disappearing off, principally into the United States; this is sometimes because a business is stripped apart and the prize piece is taken out because it is of greater value in another marketplace than it is in ours.
This is an issue on which I hope to have an opportunity to expand when we get to Amendment 30, which is causing great concern to the Bank of England about its effect on the economy of the United Kingdom. I am sure we will get an opportunity to debate that next time we meet in Committee. I have nothing further to add, but I am grateful to the noble Lord, Lord Lansley, including for encouraging the noble Lord, Lord Broers, to explain why the freedom of intellectual property management is crucial to getting the best of ARIA.
Baroness Bloomfield of Hinton Waldrist (Con)
I turn to a series of amendments that relate to ARIA’s intellectual property arrangements. I am particularly grateful for the contribution of the noble Lord, Lord Broers. With all his wealth of experience, he has added much to the debate.
Turning first to Amendments 18 and 19 from my noble friend, I point out that in exercising its functions, there is already provision for ARIA to acquire and own physical property and intangible property, such as intellectual property. In compliance with its functions, ARIA can own property as it is a statutory corporation with its own legal personality. Paragraph 17(2) of Schedule 1 is not exhaustive, and therefore covers property and intellectual property as a subcategory of property. I hope that my noble friend will understand that I cannot accept this amendment, as it duplicates what is already provided in Clause 2.
Moving on to Amendment 22, I recognise the sentiment of this amendment, and I reassure my noble friend that ARIA will have the freedom to choose whether to retain or share its intellectual property rights. We recognise that ARIA’s intellectual property arrangements will need to be flexible, as they will vary depending on the research area, the amount of involvement of partnering institutions, such as business and academia, and the stage of technological development. ARIA will also have to agree bespoke intellectual property clauses tailored to the specifics of individual programmes and projects, given that commercial value is also likely to vary across ARIA’s portfolio. An amendment here is not necessary, as Clause 2(2)(c) already makes provision for ARIA to make available rights to, or license, its property, including intellectual property. I hope that I have managed to assuage my noble friend’s interest in the flexibility of ARIA’s intellectual property arrangements.
The noble Lord, Lord Fox, asked about the acquisition of pieces of research equipment. ARIA will have the ability to do its own research if needed, it will have scientists and experts working for it and it might sometimes be simpler for ARIA to conduct research directly if needed.
The noble Lord, Lord Browne, also expressed reservations about what ARIA could do. I should point out that ARIA is a statutory corporation. It will only ever act in compliance with its functions and powers and, as a consequence, the powers must, in general, be available.
Turning finally to Amendment 28, which relates to ARIA’s ability to retain income generated through the exploitation of intellectual property, I can assure my noble friend that I firmly agree on the intention behind this amendment. The ability for ARIA to retain income from its activities is subject to ongoing discussions with HM Treasury, and will be agreed to in compliance with the Government’s consolidated budgeting guidance. The detail of arrangements will be finalised as part of the funding delegation letter between BEIS and ARIA. It is therefore not appropriate for this to be placed in legislation. I hope that I have managed to assuage his concerns on those two important amendments, and ask him not to press them.
Lord Fox (LD)
On Second Reading, the noble Lord, Lord Callanan, said that “It”—ie ARIA—
“can fund the purchase of a piece of research equipment, which ARIA then owns, and it can loan it out on the condition that it is then returned within a specific timeframe.”—[Official Report, 2/11/21; col.1204.]
So essentially, it becomes an equipment lending library. That is not exactly what the Minister has just said. Are the two things both true, is only one of them true, or what?
Lord Lansley (Con)
I am grateful to my noble friend, particularly because, as far as I can tell, we are all agreed that ARIA should have the flexibility to do these things. Where we not quite all in the same place yet is that it seems to me that the legislation can make that clear and it would be helpful if it did. Maybe we will come back to it and my noble friend will enlighten me. She seemed to say that in paragraph 17 of Schedule 1 the reference to property encompasses intangible and intellectual property but the word “property” is not there. That is my point. The word “property” needs to be there in order for intangible and intellectual property to be encompassed within it.
There are circumstances—for example, where the Secretary of State makes grants to ARIA and where ARIA provides financial support—where my noble friend seems to be saying that it will have the flexibility to enter into all these agreements, to share its intellectual property, to secure the benefits and retain them and reinvest them but that does not need to be in the Bill. Yet, we have these places where there are little lists of what the conditions might be like or what the provision might include. They may be non-exhaustive lists but the only things that seem to be listed are things that constrain ARIA, rather than making it clear that intellectual property, which is at the heart of its activity, is something where it should absolutely have this kind of flexibility.
I know the Treasury would hate to have it in the Bill that ARIA can retain intellectual property revenues and reinvest them for its purposes but that is exactly why we should put it in the Bill. I think we will return to this issue. I gladly give way to my noble friend.
Baroness Bloomfield of Hinton Waldrist (Con)
I reassure my noble friend that paragraph 17 is not an exhaustive list. ARIA can develop and exploit scientific knowledge and this covers it getting a patent, under Clause 2(1)(b). The supplementary powers in paragraph 17(1) of Schedule 1 allow acquisition and disposal of property including intellectual property—
Baroness Bloomfield of Hinton Waldrist (Con)
We will take this point away and clarify it.
Lord Browne of Ladyton (Lab)
I may have misinterpreted something earlier, but I do not think I have misinterpreted this. Paragraph 17(1) allows ARIA to do anything as long as it meets the test. It is judge and jury of its own testing. It allows it to do anything. What I do not understand is why there is a list below it because the list is just confusing. It misleads people into thinking that unless it is on the list ARIA cannot do it. It can do anything, almost, as long as it meets the test.
Baroness Bloomfield of Hinton Waldrist (Con)
I think, given the concerns raised, we will take it back and discuss this in the department.
Baroness Noakes (Con)
Can I ask my noble friend the Minister to ensure that when she comes back she explains the relationship between paragraph 17 in Schedule 1 and Clause 2, which sets up ARIA’s functions but seems to go beyond functions into things it can do? Paragraph 17 then comes and says again the things it can do. I find that confusing and that confusion may be shared by other noble Lords.
Lord Lansley (Con)
I am grateful to my noble friend. We are going to return to some of these issues and I beg leave to withdraw the amendment.
House of Lords
(2 years, 5 months ago)
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Professional Qualifications Bill [HL]
Wednesday 17th November 2021
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Lords ChamberRead Full debate Professional Qualifications Act 2022 View all Professional Qualifications Act 2022 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 36-I(Corrected) Marshalled list for Report - (8 Nov 2021)
The Minister of State, Department for Business, Energy and Industrial Strategy and Department for International Trade (Lord Grimstone of Boscobel) (Con)
My Lords, before we progress with Third Reading of this Bill, I would like to make a short statement about our engagement with the devolved Administrations. My officials and I have worked closely and collaboratively with the devolved Administrations throughout the passage of this Bill. We are continuing to discuss the requirements for legislative consent with the Northern Ireland Executive, the Scottish Government and the Welsh Government. I am grateful for their continued engagement on this issue. I beg to move.
Lord Grimstone of Boscobel (Con)
My Lords, I start by thanking your Lordships for the constructive approach that has been in evidence throughout this Bill. We have had robust discussions and debates and the Bill is all the better for that. In particular, I thank the noble Baronesses, Lady Hayter of Kentish Town and Lady Blake of Leeds, and the noble Lords, Lord Kennedy of Southwark, Lord Purvis of Tweed and Lord Fox, for the time—sometimes a deservedly hard time—that they have given me.
The Bill will achieve four key outcomes for the UK. First, it will end unequal EU-based arrangements for the recognition of professional qualifications. Secondly, it will help to strengthen the UK’s ability to negotiate and deliver ambitious deals on the recognition of professional qualifications with international partners. Thirdly, it will help professionals to enter new markets. Finally, it will provide smooth working arrangements for recognition of professional qualifications across all four nations of the UK.
I recognise that the Bill did not enter your Lordships’ House in the good state in which it leaves. The experience, diligence and practical knowledge of noble Lords have moulded this Bill into what it is today. Enshrining on the face of the Bill the concept of regulator autonomy in regard to preventing unfit individuals from practising is a landmark event.
I was gratified that the government amendments, the stakeholder engagements and the supporting documents prepared over the summer between Committee and Report were well received. I pay tribute to the noble Lord, Lord Hunt of Kings Heath, and my noble friends Lord Lansley and Lady Noakes for the expertise that they demonstrated throughout our discussions. I thank my noble friend Lady McIntosh of Pickering and the noble Lords, Lord Foulkes of Cumnock and Lord Bruce of Bennachie, for the constructive nature of the conversations that we have had on this legislation. I also thank my ministerial counterparts in the devolved Administrations and their predecessors, whom I have met on five occasions and written to nine times this year concerning the Bill. I remain optimistic and hope that they will give legislative consent to the Bill.
I thank all the regulators to which this Bill applies. We have engaged with them through a variety of avenues, including seven round tables that I hosted. They, other professional bodies and the government departments with which we have engaged have helped to shape and improve this legislation as it has moved through your Lordships’ House and we are extremely grateful for their constructive involvement.
My thanks also go to the officials who have worked so hard to get us to this position. I give particular thanks to the policy team, led by Tim Courtney, who not only overcame the challenge of compiling the list of regulators but, with his partner Cathy, welcomed the birth of their daughter, Penelope, just 12 days ago. On behalf of your Lordships’ House, I wish all three of them the very best. Tim was ably assisted by Hannah Riches, Nick French, and Sarah Mackintosh, while the Bill team was led superbly in shipshape fashion by Jamie Wasley and Jennifer Pattison. I would further like to thank my private secretary, Zack Campbell, for his sterling service on the Bill, and of course the office of the Leader of the House and the Whips, the Office of the Parliamentary Counsel and the clerks in this place. Last, but certainly not least, I thank my Whip, my noble friend Lady Bloomfield of Hinton Waldrist.
Baroness McIntosh of Pickering (Con)
My Lords, I thank my noble friend for going the extra mile to put the Bill in the state in which it is. His statement today on his continuing engagement on legislative consent with the devolved Administrations is particularly welcome. In paying tribute to him, his Bill team and my noble friend Lady Bloomfield, I urge him to ensure that we see some fruit from the common frameworks and recognise their importance in implementing what is in not just this piece of legislation but other forthcoming legislation as well. I am personally grateful to him.
I thank the Law Society of Scotland, in particular Michael Clancy, at what has been a very difficult time for him through his illness. I also thank the Faculty of Advocates, of which I am a non-practising member, for its engagement in the round table hosted by my noble friend. I warmly thank my noble friend for all that he has done and I hope that the Bill will have a safe passage through the other place.
Baroness Blake of Leeds (Lab)
My Lords, this has been the first Bill I have taken part in since I joined your Lordships’ House. While I originally thought that it was going to be an important, if not straightforward, Bill, the legislation has been much more of an eye-opener than I was expecting. For example, I did not expect that simply asking who the Bill related to would result in such confusion from the Government and months of delay. Securing a list of regulators and professions in scope of the legislation has been important work. I recognise the effort that the Government have put in to compile the list, although I again suggest that perhaps it could have happened before the Bill was published.
It has been fascinating and enjoyable and I am glad that my first Bill has been so important both for British citizens who want to work abroad and for workers who want to bring their expertise to the UK. Our public services would not function without them and our communities are richer when they decide to make the UK their home.
Ultimately, I have seen first-hand how this House can really scrutinise and improve legislation. I am sure that the Minister will agree, as he has stated, that this is a better Bill now than when it was first introduced to Parliament. From the start, we on these Benches said that it should not undermine the independence and autonomy of regulators due to their important function of setting standards and protecting consumers. There was widespread concern from inside and outside the House that Clause 3 in particular could force regulators to lower standards due to what Ministers had agreed in the free trade agreements.
I thank the noble Lords, Lord Lansley and Lord Fox, and the noble Baroness, Lady Noakes, for working cross-party on this important issue. That is why the Government’s amendment to protect regulatory autonomy is such a welcome addition to the Bill. This is a big change and, while not perfect, it should protect domestic standards across 205 regulated professions. I pay tribute to all the regulators which have engaged so constructively with us.
As this was a skeleton Bill, we also pushed the Government repeatedly to consult regulators and devolved authorities on regulations. The Government’s amendment making statutory provision for consultation with regulators, including departments in devolved Administrations, is a good step forward.
Baroness Noakes (Con)
My Lords, while it is undeniably true that this is a better Bill leaving the House than when it arrived, in particular because of the addition of Clauses 14 and 15, it was never clear to me what problem the Bill was seeking to address and whether indeed it was necessary. My noble friend claimed that four benefits would flow from the Bill. If ever there was a case for post-legislative scrutiny to see whether those benefits in fact accrue, this is one of them, because I am less than clear that the considerable effort that my noble friend has had to put in to turning the ragbag of a Bill that arrived here into something that resembles a meaningful contribution to the area of professions was a good use of his time and that of his officials. As I say, I am quite clear that it is a better Bill, but whether the Bill was ever necessary is an open question.
Lord Moynihan (Con)
My Lords, on behalf of the British Association of Snowsport Instructors and all the winter sports organisations, which have taken a very active role and interest in the passage of this Bill, I thank the Minister for his consistent, collaborative and close support for the British winter sports federations, particularly with the newly-formed contacts in UK embassies, addressing issues such as work permits, local regulations and overt protectionism. We have taken one step forward as a result of the Bill being before this House, but that one step has been very much as a result of the efforts of my noble friend, for which many thanks.
Lord Fox (LD)
On the assumption that there are no more professions that would wish to thank the Minister, I shall do so. I am pleased that he is continuing to work on legislative consent, which is important. Too many Bills are starting to come through your Lordships’ House where legislative consent is not given. Given the nature of this Bill, it is important that the devolved authorities are working with it 100%, so I thank the Minister for his statement and associate myself with the comments of the noble Baroness, Lady McIntosh, about the role of frameworks.
It is something of a cliché to say, “The Bill leaves this place a better Bill”, but in this case the cliché is true. The Minister set out his view on that and other noble Lords have been more specific about its shortcomings. I will not go into them, but I thank the noble Lord, Lord Grimstone, who has had an ear to this issue from the beginning and took the very worthy decision to put the Bill on holiday over the Recess and come back with something that we were all better able to support, with some reservations from the noble Baroness, Lady Noakes. I also thank the noble Baroness, Lady Bloomfield, whose whiply eye stared across at us when she thought we had talked for too long.
The Bill team has had a particularly rough ride on this, and I thank it for its work, as I thank the wider community that has fed into the Bill. I thank the ever-changing Opposition Front Bench for its engagement and work. Finally, I thank my colleagues, my noble friends Lady Randerson, Lady Garden, Lord Palmer of Childs Hill and Lord Purvis, as well, of course, and without whom we could not have survived, Sarah Pughe, our legislation administrator who drove us through all of this.
The Bill has a lot to achieve in that it needs to set out a structure for how the Government engage with the professions in future. It was quite clear that that engagement had not existed in the past, and perhaps this can be a stepping stone to a wider engagement between the Government and these regulatory authorities.
Lord Davies of Brixton (Lab)
My Lords, I declare an interest as a member of a profession, albeit one which is not mentioned specifically in the Bill. I still have some residual concern that, although we welcome the list, the way the Bill is drafted could incorporate professions not listed, because of some obscure entry in other pieces of legislation which have not been picked up. However, my main question is that a lot of work arising from the Bill remains to be done and the UK-EU Partnership Council has an important role to play. I am a keen follower of the Partnership Council, I look at its minutes and its meetings, and this issue, even though it has been identified as a priority, does not appear to have been discussed. Perhaps the Minister can reassure me that the matter will be dealt with with utmost haste.
Lord Grimstone of Boscobel (Con)
My Lords, I thank noble Lords for their comments and thanks, particularly to my officials and the Bill team. I say to the noble Baroness, Lady Blake of Leeds, that no one would have known that this is the first Bill that she had worked on, and I am sure that it is the first of many in which she will successfully participate. I have noted the point made by the noble Lord, Lord Davies of Brixton, and, if I may, I will write to him about where this stands in relation to the Partnership Council. I beg to move.
Police, Crime, Sentencing and Courts Bill
Wednesday 17th November 2021
(2 years, 5 months ago)
Lords ChamberRead Full debate Police, Crime, Sentencing and Courts Act 2022 View all Police, Crime, Sentencing and Courts Act 2022 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 40-IX Ninth marshalled list for Committee - (15 Nov 2021)
Lord Falconer of Thoroton
“(8) After section 102, insert—“102A Centralised monitoring of court decisions to impose youth custodial remand (1) Within six months from the day on which the Police, Crime, Sentencing and Courts Act 2021 is passed, the Secretary of State must nominate a body to collect, analyse and publish data on the decision-making process of courts when sentencing a child to custodial remand.(2) “Decision making process” refers to the consideration and application of the required Conditions for the custodial remand of children by the court, as set out in the Legal Aid, Sentencing and Punishment of Offenders Act 2012.(3) A report on the findings must be laid before Parliament and published on an annual basis.(4) The first report must be published and laid before Parliament no later than 18 months from the day on which the Police, Crime, Sentencing and Courts Act 2021 is passed.””Member’s explanatory statement
This amendment seeks to introduce centralised monitoring of the youth remand decision-making process.
Lord Falconer of Thoroton (Lab)
Before we come to this important group of amendments, I have one housekeeping matter. As noble Lords are aware, the amendments have been marshalled according to the instruction of 13 October 2021, and that puts Clauses 55 to 61 towards the end of our Committee stage. If noble Lords who have the ninth Marshalled List of amendments go to Amendment 319A, they will see a number of pages of government amendments which, in effect, introduce a range of new offences and new powers for the state. In effect, they introduce the offences of locking on and of being equipped for locking on, and they change the law on wilful obstruction of the highway and on obstruction of major transport works.
This is not for the noble Lord, Lord Wolfson, but it would be convenient if the Government, at some stage during Committee, indicated how they intend to deal with the pages and pages of amendments. A whole new structure of offences is being introduced in Committee in the Lords without the stages in the Commons having been gone through and without a Second Reading on those issues. This is not for now, because I have given no warning of it, but it will take as long as it takes to get an answer as to whether special provisions will be made, whether the Government intend to stop the Committee and have a Second Reading, or whatever. Whatever the plans are in relation to this, we on this side of the House—indeed, I think the whole House—would like to know, so we can think about how we deal with it, because it is an important issue.
The group we are about to deal with concerns youth justice. We are into a new part of the Bill and part of this group will raise issues about the age of criminal responsibility. The only reason I am starting is because my Amendment 219B requires the centralised monitoring of court decisions to impose youth custodial remands. As noble Lords will know, a whole new regime of remanding people aged 10 to 17 in custody was introduced by the LASPO Act in 2012. It gives rise to very practical difficulties throughout the country in relation to finding appropriate places to remand people of that age in what is, in effect, detention of some sort. There is no centralised monitoring.
In responding to this amendment, will the Minister indicate what the current arrangements are for monitoring this nationally, and what is the Government’s proposal, if any, for making sure that national statistics are regularly available? Without such statistics, it is difficult to have an informed debate about what additional provision is required, save to say that the experience on the ground is that there needs to be more proper provision over a range of options. I beg to move.
Baroness Butler-Sloss (CB)
My Lords, I shall speak to Amendment 220. I feel very strongly about the issue of the age of responsibility of children. I first raised it in this House in 2006, when a Labour Government dismissed it out of hand. I was for 35 years a family judge dealing with children; I happen also to have brought up three children, and I care about children. In 2006, what is now known about young children and the maturation of their brains was not particularly well known, but a great deal of evidence has now come forward. It was looked at by the Select Committee on Justice in the other place in November of last year.
Psychiatrists gave evidence, in particular about the fact that young children aged 10—and, for goodness’ sake, a child of 10 is young—do not really mature until considerably later. We have only to look at what is happening across Europe as an example. Scotland has raised the age to 12. The age of responsibility across Europe is either 12 or, in more places, 14. We remain at 10. I think it is probably because successive Governments, on both sides of this House, are afraid of what the public will say.
Lord German (LD)
My Lords, I present the apologies of my noble friend Lord Dholakia, who is unwell and in some considerable pain. He is therefore not able to attend your Lordships’ House. On his behalf, I have his speech, from which I should like to read some extracts. I am sure that Members of the House of Lords will recognise, of course, that my noble friend had a Private Member’s Bill precisely on this issue, and that it passed all stages in this House. It fell because of Prorogation and therefore had no time in the House of Commons. This House has certainly made its view well known and presented it to the House of Commons. This amendment gives us an opportunity to make sure that what was decided by this House is carried forward.
My noble friend Lord Dholakia has said that, at present, in England and Wales, children are deemed to be criminally responsible from the age of 10, and this provision was last amended more than 50 years ago, in 1963, when the age of criminal responsibility was raised from eight to 10 by the Children and Young Persons Act of that year. This means that children who are too young to attend secondary school can be prosecuted and receive a criminal record. A 10 year-old who commits a “grave crime”—which includes serious, violent and sexual crimes but can also include burglary—will be tried in the adult Crown Court. A child of 10 or 11 who is accused with an adult will also be tried in the Crown Court.
The age of criminal responsibility in the United Kingdom is the lowest in Europe. In Ireland, in 2006, the age was raised to 12, with exceptions for homicide, rape or aggravated sexual assault. In Scotland, where the age of criminal responsibility was particularly low, at eight, legislation in 2010 amended it to age 12. Outside the British Isles, the age of criminal responsibility is invariably higher. In Holland, it is 12; in France, it is 13; in Germany, Spain, Italy, Austria, Hungary, Bulgaria, Slovakia, Slovenia, Croatia and Romania, it is 14. In most other European countries, it ranges between 14 and 18. Across Europe the average age is 14.
The United Nations Committee on the Rights of the Child has repeatedly stated that our minimum age of criminal responsibility is not compatible with our obligations under international standards of juvenile justice and the UN Convention on the Rights of the Child. In a statement in 1997, the committee said:
“States parties are encouraged to increase their lower minimum age of criminal responsibility to the age of 12 years as the absolute minimum age and to continue to increase it to a higher age level.”
In subsequent reports in 2005 and 2007, the committee reiterated that a minimum age below 12 is not internationally acceptable.
Taking 10 or 11 year-olds out of the criminal justice system would not mean doing nothing with children who offend; it would mean doing what other countries do with 10 and 11 year-old offenders. It would mean doing what we do with delinquent nine year-olds. In other words, it would mean dealing with the causes of these children’s offending through intervention by children’s services teams. In the minority of cases where court proceedings are necessary, it would mean bringing children before family proceedings courts, which can impose compulsory measures of supervision and care. In the most serious cases, this can mean detention for significant periods in secure accommodation, but this would be arranged as part of care proceedings rather than as a custodial punishment imposed in criminal proceedings.
In 2012, the Centre for Social Justice, which was set up by the former Secretary of State for Work and Pensions, produced a report on the youth justice system entitled Rules of Engagement: Changing the Heart of Youth Justice. It said:
“There is now a significant body of research evidence indicating that early adolescence (under 13-14 years of age) is a period of marked neurodevelopmental immaturity, during which children’s capacity is not equivalent to that of an older adolescent or adult. Such findings cast doubt on the culpability and competency of early adolescents to participate in the criminal process”.
The evidence internationally is overwhelming, and from the United Kingdom and from this House. There is extensive evidence from neuroscientists, psychologists and psychiatrists demonstrating the developmental immaturity of young children. The Royal College of Psychiatrists has expressed the view, based on evidence, that our age of criminal responsibility is too low.
While a 10 year-old might know that stealing something is wrong, their ability to apply that knowledge to their actions will be very different from that of an 18 year- old. This does not mean that children aged 10 or 11 have no responsibility for their actions, but on any reasonable interpretation of the evidence, they must be regarded as less responsible than an older adolescent or an adult.
The age of criminal responsibility is an anomalous exception. In relation to the age of consent for sexual activity, for example, we regard any purported consent as irrelevant in order to protect children from abuse or immature sexual experimentation. It is completely illogical that we regard immaturity in this context as worthy of protection by law but take a diametrically opposite approach when it comes to criminal responsibility. The illogicality of our current law is increasingly recognised. The Law Commission concluded last year that the age of criminal responsibility is not founded on any logical or principled basis.
The fact that the numbers involved are relatively small is a strong argument for this amendment. It means that it will not be a huge burden on resources to make alternative provisions through welfare interventions; nor would dealing with these children through non-criminal processes put the public at risk.
Children who are officially labelled as offenders often react by trying to live up to the label and acting in increasingly delinquent ways to achieve status in front of their friends. While the numbers are low, the resources needed to execute a shift towards treating these vulnerable children through a welfare lens, rather than a criminal justice one, would be small, and the positive benefits for them and for wider society considerable.
Even though some changes have been made to court processes involving children, it remains true that exposing young children to a criminal trial is no way to achieve justice. This is a short amendment but its recommendation, if implemented, will change the shape of our criminal justice system for our children.
Lord Brown of Eaton-under-Heywood (CB)
My Lords, I strongly support this amendment, as I have supported the PMBs on this from the noble Lord, Lord Dholakia, over recent years. The reasons for raising the age by the—goodness knows— modest enough margin of two years, from 10 to 12, are cumulative and compelling. If there is any objection to this amendment, it is that it does not go far enough, but I do not make that objection.
I have three reasons for supporting this. First, a 10 year-old’s mental capacities are not comparable to those of an older adolescent or adult. The noble and learned Baroness, Lady Butler-Sloss, has made these points about maturation, and I will not repeat them.
Secondly, criminalising these youngsters while they are still developing their identities and character and growing socially and emotionally is deeply damaging to their self-esteem and future prospects. Brand a child of 10 or 11 a criminal and that is how he will come to see and identify himself, and so he will behave in future. The subsequent criminal records of those who have been thus branded bear this out. Their records attest to it.
Thirdly, whatever their wrongdoing and however grave—to call it criminal is of course to beg the question—they will be dealt with in the same basic way whether they are convicted under the criminal justice system or dealt with through corrective welfare processes. If they need to be detained securely, they will be. The necessary measures can be imposed whichever route is taken, whether they are prosecuted as criminals or treated as however gravely miscreant children requiring correction. The public will not suffer if in future they are recognised as children who have done something dreadfully wrong rather than wicked criminals. On the contrary, the public will benefit. These children are more likely to lead law-abiding lives in future if we change our system at last.
It is high time to banish the long shadow of the tragic Bulger case—it has already been mentioned today—that, alas, is still cast and obscures the realities and common sense on this issue.
Lord Thomas of Cwmgiedd (CB)
My Lords, I also rise to support Amendment 220. When I was chairman of the Commission on Justice in Wales, we looked at this issue and had extensive evidence, including from the Children’s Commissioner for Wales. Without hesitation, we recommended that, were it free to do so, Wales should raise the age of criminal responsibility to 12, consistent with United Nations obligations it has untaken.
I agree completely with what has been said about the profound changes in the understanding of mental capacity that have taken place over the last 10 years in particular. I urge the Government not to delay any further a change to make our country no longer a laggard on this issue but one that is at least catching up. There are problems, such as knife crime, but the age of criminal responsibility is not the way to deal with them.
Baroness Chakrabarti (Lab)
My Lords, it is very good to see the Committee refreshed and to have the opportunity to meet earlier in the day, so I thank the powers-that-be for making this possible.
Baroness Jones of Moulsecoomb (GP)
My Lords, I rise to speak in place of my noble friend Lady Bennett, who has tabled Amendment 221. As the noble Baroness, Lady Chakrabarti, said, it is perhaps a softer option that your Lordships might find acceptable.
I strongly support the amendment in the name of the noble Lord, Lord Dholakia, and the noble and learned Baroness, Lady Butler-Sloss. The only qualm I have about Amendment 220 is that it sets the age at 12 and not 14. Quite honestly, we treat our children in the criminal justice system absolutely abysmally, with demonstrably disastrous results and a recidivism rate of 40% within a year. This demonstrates that the courts are not working to address the issue of these children. As we have already heard, the Children’s Commissioner has described the youth justice system as “chaotic and dysfunctional”, and the children caught up in it are disproportionately from ethnic minority communities.
We are world leading in the awful way in which we treat children. At 10, we have the lowest age in Europe—far below the suggestion from the UN Committee on the Rights of the Child of a minimum appropriate age of 14. That is the average across European countries, but even China and Russia—where the UK rightly often has cause to point out human rights abuses—have higher ages of criminal responsibility than we do. And we do not have far to look—we can go to Scotland to see exactly what happens there. There the age is 12, and I would prefer it to be 14.
This is not a moral question but a scientific one. Children’s brains do not develop as quickly as people might think. Children below the age of 14 are still developing the capacity for abstract reasoning. Their frontal cortex is still developing; therefore, they are unlikely to understand the impact of their actions. I think there is some political will in Westminster to take this evidence on board and, to use a phrase so loved by the Government, “level up” our youth justice legislation. In 2020, the Justice Committee recommended that the Ministry of Justice review the minimum age of criminal responsibility. Unfortunately, the Government seem to have chosen once again to renew their ideological commitment to being tough on law and on youth crime, even when it is committed by children. This is not an acceptable status quo either on human rights or on scientific grounds. Children are being failed by antiquated government standards. This is an outrage, and reform is needed.
If the Government cannot accept Amendment 220—which they absolutely should—Amendment 221, in the name of my noble friend Lady Bennett, might be a soft option. Both she and I hate putting softer options to the Government, but, in this case, it might work. It would ensure a legally binding commitment on the UK Government to at least consider whether our abnormally low age of criminal responsibility is tenable, given international norms and expert opinion. My noble friend Lady Bennett would, of course, be happy to discuss a revised text for Report. Personally, I would tough it out and potentially vote for Amendment 220 and for our Amendment 221.
Lord Carlile of Berriew (CB)
My Lords, I apologise to the noble Baroness who has just spoken. It is a pleasure, on this occasion at least, to follow her. I do not necessarily agree with some of the language she used. I do not feel a sense of outrage about this issue. I feel shame and sadness and I agree strongly with the speech of my noble and learned friend Lady Butler-Sloss, and other noble Lords who have spoken on this issue.
The noble Baroness, Lady Jones, used the term “outlier”. That is what I had scribbled down on the piece of paper in front of me. We are the outliers on this. As the noble Baroness said, in Russia the age of criminal responsibility is much higher. Indeed, the general age of criminal responsibility there is 16, with 14 for exceptionally serious offences. I have visited a number of countries in central and eastern Europe and looked at the way in which young children who have committed serious offences are dealt with, and I do not notice a higher level of disorder in a single one of these countries. I do not know any country with a higher age of criminal responsibility in which children roam the streets committing crime to a greater extent than—very occasionally, fortunately—happens here, and I can see absolutely no empirical reason for turning down this amendment.
I have also observed how children behave when they are sent to Crown Courts. I am happy to note that far fewer children are being dealt with in Crown Courts than used to be the case and that the Crown Prosecution Service is being much more sensitive than it used to be at one time as regards the joinder of children with adults in Crown Court trials. The CPS has recognised that, wherever it is possible, children should be dealt with in the youth court. That has led to a reduction in the number of Crown Court trials.
Lord Sandhurst (Con)
My Lords, perhaps I may begin by saying that I support Amendment 220. I endorse it completely and have nothing further to say on it. Noble Lords have spoken with great eloquence and force. As the noble Baroness, Lady Chakrabarti, has explained, my Amendment 221ZA, is a probing amendment designed to correct the terms of a subsection in Amendment 221 in case that amendment goes forward and the Government are interested. Let me explain.
I should say at once that Amendment 221 is, in principle, good. If accepted, it would require the Government to carry out a review of the age of criminal responsibility. I have no argument with that whatever. The issue that I raise is with the list of factors to be considered by any such review and, in particular, the use of the word “gender”. The right word there should be “sex”. The requirement in Amendment 221 is that the review should take into account certain factors. It can take other factors into account, but the following are mandatory:
“age, gender and ethnic background”.
My focus is on gender. Those noble Lords who sat through the important debate on Monday night will have heard lengthy discussion of those terms and their use in legislation. I will come back to that.
When I drafted my amendment rather hurriedly on the Thursday, I focused on the terms in the Equality Act. Why I did so will become obvious in a moment. I used too many words; I just lifted other factors in order to include them. I am now satisfied that the only proper course is to remove the term “gender” and substitute that with “sex and gender reassignment”. The cohort, if the review were to take place, will be those under 18 and, for the large part, those materially younger. One could call them children. Importantly, “sex” is established in statute and describes physiology. It is not a social construct. It is easily identified, and is listed and defined, as I shall explain, in the Equality Act. It should be noted that “gender” is not so defined. I say that for noble Lords who were not here on Monday or have not studied the Act in detail.
Section 11 of that Act states:
“In relation to the protected characteristic of sex … a reference to a person who has a particular protected characteristic is a reference to a man or to a woman; … a reference to persons who share a protected characteristic is a reference to persons of the same sex.”
There is further elaboration in Section 212, which defines “man” and “woman”—in other words, the terminology that has just been explained. It states that,
“ ‘man’ means a male of any age … ‘woman’ means a female of any age.”
There we have it all clearly defined. Sex is a physiological condition and, importantly for the purposes of a review, it is an objective fact, not someone’s opinion. It is not what someone identifies as. We are talking here about people under 18, usually those much younger. Also, we all know that sex is registered at birth. It is on the birth certificate.
In the case of a small number of people who are under 18 and may fall within the ambit of the review, there may be those to whom the term “gender assignment” will apply. They will be few, but if that does apply within the meaning of the legislation, that, too, will be a fact, not an opinion. That is because gender reassignment is also a protected characteristic under the Equality Act. Section 7(1) of that Act defines gender reassignment as follows:
“A person has the protected characteristic of gender reassignment if the person is proposing to undergo, is undergoing or has undergone a process (or part of a process) for the purpose of reassigning the person's sex by changing physiological or other attributes of sex.”
So gender reassignment likewise refers to a physiological process and does not include mere self-identification or opinion. Lastly, in case anyone were to ask, “What about gender recognition certificates?”, they simply do not apply. One cannot have one of those if one is under 18. I say that so that everyone knows where we are.
Put simply, if there is to be such a review, the mandatory—if that is the right word—considerations should be age, sex, gender reassignment and ethnic background, but not gender. I commend this approach and await with interest the Minister’s response.
Baroness Chakrabarti (Lab)
I should say briefly in the absence of the noble Baroness, Lady Bennett of Manor Castle—perhaps it is not my place to do so because it was her amendment that I signed—that I should thank the noble Lord, Lord Sandhurst. We have been using various terms in Committee, but on this occasion he must be right. If one were considering children under 18 in the context of a review of the age of criminal responsibility, it would be a glaring omission to include “gender” instead of “sex” in the legislation.
Sometimes it may be appropriate to use both terms, and I supported that position on Monday in the particular context of a different amendment about hostility towards people. What I tried to suggest, and which Twitter does not reflect, is that hostility can be towards people in broader categories than those protected under the Equality Act. I would not want someone to be subjected to violent hostility, even on grounds that are not currently in the Equality Act, because they were non-binary or whatever. That is not really the point in this context. If I may say so, the noble Lord, Lord Sandhurst, put it very well.
What is more, I hope that the noble Baroness, Lady Bennett, will forgive me for making that concession, given that this is a probing amendment and her list of factors to be considered in any review was inclusive and not closed. I hope it is helpful to respond to the noble Lord, Lord Sandhurst, in this way.
Lord Hogan-Howe (CB)
My Lords, I broadly support a rise in the age of criminal responsibility. I think the review is a good idea, and of course it should be science-based. The danger of going for 12 years, which is an improvement, is that it could be higher if only we thought about it well. I would be open-minded on whether it needs to be a matter of law or a government commitment to carry out a review.
There is just one area which I hope such a review might consider. The Bulger case is often referred to, for obvious reasons. Hard cases can make very bad law; we are aware of that. But I do think that that type of case imposes a duty on government to consider people’s concerns. There are two concerns that people might have if they lived in the area. One is where the child would live on return to society. That could be covered through care proceedings—you can control where someone lives and who they live with. The second is their occupation. If, at the age of 18, the murderers were released—as they were in the Bulger case—and wanted to go into childcare, or any of the care professions, would people be content with that? There would at least be a question about whether that would be wise. If they only have a care proceeding against them, they would be perfectly entitled not to declare what they were involved in at the age of 10. My point is not that they should be criminalised and therefore always carry that with them, but about how you manage their occupation, subsequent to their reaching an adult stage. It can be managed without criminalisation, but such a review might want to consider how that could be done most efficiently.
Lord Marks of Henley-on-Thames (LD)
My Lords, I am constantly amazed by the persistence of this generally civilised country in being willing to treat children of 10 and 11 as criminally responsible.
The noble and learned Baroness, Lady Butler-Sloss, my noble friend Lord German, the noble and learned Lord, Lord Brown of Eaton-under-Heywood, and all other noble and noble and learned Lords who have spoken have made the argument persuasively and on the basis of the scientific, social and international evidence. I say no more about the strength of the evidence.
The noble and learned Baroness, Lady Butler-Sloss, also pointed out the degree to which government inaction on this issue has been based on public prejudice and the Government’s pandering to it. Bluntly, that is moral cowardice, not leadership. Many of us find it unbelievable that, uniquely in western Europe, our children of 10 and 11 can be treated as criminals, when it is entirely clear that they lack the psychological maturity that is appropriate for any legitimate view of criminal responsibility. Why did change come successfully to Scotland and yet the Government seem unprepared to make it here?
I pay tribute to my noble friend Lord Dholakia, who has campaigned tirelessly on this issue for many years. I know he will have been most disappointed to have been unable to attend to speak today. But the House has fully recognised in this debate his commitment and his major contribution on this issue, and we will wish to send him our good wishes for a full and swift recovery.
Amendment 221A in my name and that of my noble friend Lord German has a different purpose. It is to pursue the worthwhile goal of diverting young offenders away from the criminal justice system and towards alternative methods of encouraging them to avoid offending. Youth offender teams have been established since 1998 and have as their function helping young offenders under 18 under supervision of the Youth Justice Board. Central to their function has been to establish services within their local communities to help prevent offending and reoffending. They have a wide remit that permits them to organise a range of activities in an effort to keep young people away from crime. Sometimes this involves involving young people in a form of restorative justice by bringing them into contact with their victims and helping them to organise reparation where it is thought that might help the offender and be accepted by the victims. Among their functions is to help supervise community sentences for young people. Our amendment is designed to help youth offender teams fulfil their function by diverting young people within their area away from the criminal justice system.
Baroness Sater (Con)
My Lords, I rise to speak briefly to Amendment 221B in my name, which is a probing amendment on the need for a review of youth sentencing. I would also like to refer to my interests as set out in the register.
I appreciate that this is a very extensive Bill, and as a former member of the Youth Justice Board and a youth magistrate I note that there has been little reference to the youth courts. It would be a real opportunity lost not to commit to undertake a review of youth sentencing, especially with the ever-evolving criminal justice landscape.
As I mentioned on Second Reading, I have several concerns relating to youth sentencing, and one in particular that I would like to refer to today, which is the unfairness in the treatment of the jurisdiction of young offenders under 18 years of age with regard to the dates of the offence and their first court appearance. Simply put, young people who commit an offence as a child but are then not brought to court before their 18th birthday through no fault of their own are treated as adults in the adult courts. However, defendants who do not get to court before their 18th birthday will go to the youth court where they will benefit from all the specialisation and expertise of the youth court, the youth court practitioners and the youth court’s specific focus on the defendant’s needs and welfare.
It should not be a postcode lottery of where you live due to multiple issues, including court scheduling, that can affect which court you end up in and therefore how you are dealt with. Reforming this now is important, so that defendants are instead dealt with according to their age at the time of the alleged offence, which would mean that youth justice principles would be followed and all defendants would be given the same opportunity and fairness in having access to the youth court services and the support that is so needed to reduce reoffending. We know that the adult court cannot offer the same specialist support as the youth court.
In February, the MP for Aylesbury, Rob Butler, introduced a 10-minute rule Bill on this issue in the other place, where he outlined how his proposals garnered a wide range of support, not only cross-party support but support from key stakeholders and organisations including the YJB, the National Association for Youth Justice and the Magistrates’ Association. There seems to be no common sense or fairness that these young people are treated so differently.
The Covid-19 pandemic has thrown up challenges and, in turn, some positive innovation in youth justice. At the same time, there remain outstanding anomalies in youth sentencing that pre-date the pandemic; I have spoken about some of those issues before in this place, and again today. All taken together, surely now is the right time to commit to a wide-ranging review and for the Government to bring forward a report. In doing so, not only can we address and meet future challenges, and keep under review the innovation we have seen, such as the use of video linking, to ensure that it results in the intended outcomes; importantly, we can also help to address the historical anomalies in the system that existed well before Covid-19.
I look forward to hearing from my noble friend the Minister and hope that he will consider this review, which I hope will help to deliver and improve outcomes in youth justice.
Lord Marks of Henley-on-Thames (LD)
My Lords, I apologise to the noble Baroness for speaking before her; I did not realise that she wanted to speak. I also apologise for erroneously referring to her as the noble Lord, Lord Sater.
Lord German (LD)
My Lords, I too have added my name to Amendment 221A, which would make youth diversion schemes statutory. I will say a few words about that, as well as about Amendment 219B in the name of the noble and learned Lord, Lord Falconer.
Formal criminal justice system processing—for example, through prosecutions or out-of-court disposals—makes children more, not less, likely to offend. The further a child is processed inside the formal criminal justice system, the greater the likelihood of reoffending, especially for lower-risk children. There is strong evidence both nationally and internationally that youth diversion can reduce crime, cut costs and create better outcomes for children. However, it is currently a non-statutory function for youth offending teams.
We know that practice varies considerably between areas and that some areas have no diversion scheme at all. The 2019 mapping exercise carried out by the Centre for Justice Innovation found that, of the 115 youth offending teams responding, 19 said that they did not have a point of arrest diversion scheme. There is a wealth of great work going on across the country, but there is a dearth of best-practice exchange. I believe that it is quite correct that there should be the principle of local decision-making because that can bring together the wide range of partnerships needed to make any programme work. Keeping it local means that the team can do its work best.
However, the picture is of a set of procedures that are variably practised—some with both breadth and depth, and some without one or other of those attributes. Locally, practitioners are dedicated and have built up some very impressive practices, but in many areas the eligibility criteria are unduly strict, the referral processes slow and the interventions too lengthy. Youth offending teams are not to blame for the variation we see. Because it is non-statutory, we lack robust data and data analysis. Many youth offending teams struggle to keep their services within budget, and staff and funding may not always keep pace with the increased workload, especially when it is non-statutory.
We need a better understanding of what is happening on the ground, where the gaps in provision are, how good schemes can be supported and how good practice can be passed on. The way to achieve this is to make the service statutory and to support the work with funding as necessary. Amendment 219B, in the name of the noble and learned Lord, Lord Falconer of Thoroton, has much the same knowledge request. Basically, you cannot know what you do not know, and if you do not know what the figures and statistics are, you will be unable to take action accordingly. Understanding this better matters both locally and nationally. I believe that making this statutory would ensure that the good practice which abounds in our country is given the opportunity to grow even more, so that we can divert as many young people as possible from the criminal justice procedure. But to do that, we need certainty, and this amendment provides it.
Lord Falconer of Thoroton (Lab)
My Lords, I join noble Lords in wishing the noble Lord, Lord Dholakia, well and a fast recovery. He has played an important part over many years in the debate on child responsibility and the criminal responsibility age. We miss him today in this debate.
I also express my unconditional support for Amendment 221A in the names of the noble Lords, Lord Marks and Lord German, which would put pre-charge diversion schemes on a statutory basis. As the noble Lord, Lord German, said, these good schemes are present in many places; it would be a good thing if they were put on a statutory basis.
I agree with many of the points made by the noble Baroness, Lady Sater, on Amendment 221B. I will be interested to hear what the noble Lord, Lord Wolfson, says about it. I do not know whether a review of the whole sentencing position in relation to the youth court is the right answer—let us see what the Minister has to say—but the noble Baroness’s points were powerful and important, and the Government need to deal with them.
The main issue in the debate on this group is the age of criminal responsibility. The case for increasing it has been made overwhelmingly and I agree with it, particularly the point about evidence on the maturation of children and whether they should be viewed in the same category. I strongly support the view that that would increase reoffending because it would make a child see himself or herself as a criminal, which is bad for society. I was also influenced by the point that we are an outlier and that what we do with children, whether in the care system or in the criminal justice system, should not be different.
I have one big concern, however. I do not accept the characterisations of the noble Lord, Lord Marks, and the noble and learned Baroness, Lady Butler-Sloss. Both referred to the incredibly tragic Bulger case, saying that you should not give way to pressure because it does not show leadership when dealing with a case like that; the noble and learned Baroness referred to the tabloids. What happened in the Bulger case was awful and had an utterly legitimate effect on the Merseyside community. To try to dismiss that as something “got up by the tabloids” is, in my respectful view, to misunderstand utterly the significance of the event. Also, if you speak to people who were involved in the Bulger trial, you realise that it was an incredibly important trial. It lasted a month and brought to the fore a whole range of things that were troubling the community, and it also identified what had happened.
For justice to work in our country, it must to some extent reflect reasonable views about what should happen. I do not say that as a result of the Bulger trial, the age of criminal responsibility should be 10. But in considering how to deal with the age of criminal responsibility, which may well go up to 12—the evidence on that is overwhelming—you have to have a justice system that functions properly to deal with that sort of case. Otherwise, the community reacts not because they are inflamed by the tabloids, but honestly and in a normal way to what has happened.
Jamie Bulger’s parents, quite legitimately, made public what had happened and the community knew what had happened. The justice system must be able to deal with that, perhaps through some sort of intermediate proceedings; however, we do need to address this. To those noble Lords, such as the noble and learned Lord, Lord Brown, who say that it casts a long shadow, I say this: it does and it is still there, and it must be dealt with.
Subject to that, I am in favour of increasing the age of criminal responsibility from 10 to something higher. I am not as dismissive as other noble Lords of having some sort of review to deal with this. It would need to look at the issues raised by the noble Lord, Lord Hogan-Howe, which are important. Also, if you are taking 10 to 12 year-olds out of the criminal justice system, it would need to consider how to deal with the issues raised by the Bulger trial, perhaps not through criminalising but through some other process.
Baroness Butler-Sloss (CB)
My Lords, the noble and learned Lord misunderstood, if I may say so, what I was saying. Of course one had to treat the Bulger case with great care. I had a part in giving what were by then two young men lifetime anonymity, so I had to learn a great deal about what went on. Of course they had to be dealt with severely but what should happen in the future, in another case, should be, under the Children Act, secure accommodation, where they could have been kept as long as if they had been criminalised. I was merely using that appalling Bulger case as an example of how 84,000 people thought that they should stay in prison for ever, until they died. My point was not to treat the Bulger case as less serious; it was unbelievably serious. As the noble and learned Lord, Lord Brown of Eaton-under-Heywood, said, it has cast a long shadow, which continues today. The Bulger case was wrong in that the children should not have been tried in an adult criminal court. It was purely and simply to show the punitive element in this country, which had a marked effect on the noble and learned Lord’s Government. When I raised this issue in 2006, I was dismissed summarily, it being seen as quite unsuitable to raise the age from 10 to 12. That Government were without the evidence that there is today, but, for goodness’ sake, they also took the view that Lucy Frazer took to Sir Robert Neill’s committee.
Lord Falconer of Thoroton (Lab)
My Lords, that was my fault. I was not for one moment suggesting that the noble and learned Baroness, Lady Butler-Sloss, was saying that the Bulger case did not require enormously sensitive handling, nor that she was in any way underestimating the seriousness of it. I was seeking to say that the fact that there were tabloid campaigns about it and that people were very concerned about it was absolutely legitimate. What they were asking for was not necessarily legitimate, but there was very real concern. Obviously, there must be anonymity, but if the matter is dealt with entirely in the care system, without any public element of how the law is dealing with it, then the community never gets satisfaction in relation to what is happening. By satisfaction, I mean that there must be some recognition within the justice system of the appalling nature of what has happened.
Lord Carlile of Berriew (CB)
Surely the noble and learned Lord is not saying that the public aspect of this, which he describes rightly, must be dealt with by a criminal trial. Numerous other mechanisms can be used. An inquiry, for example, can ventilate all the public factors that need to be discussed without the artifices of a criminal trial for 10 year-olds.
Lord Falconer of Thoroton (Lab)
I agree that it does not need to be dealt with in a criminal trial, but there needs to be some process. Before one increases the age of criminal responsibility from 10 to 12, which we should do, this must be looked at. This is why I rather favour the second amendment, tabled by the noble Baroness, Lady Chakrabarti, which is a review of this, because broadly the case is made in relation to it. It probably should not be something ad hoc, as is the nature of an inquiry, but it should have some recognition that cases such as the Bulger case, which have a significant effect on not only the local but the national community, must be dealt with in a special way.
Lord Marks of Henley-on-Thames (LD)
My Lords, I associate myself with everything that the noble and learned Baroness, Lady Butler-Sloss, and the noble Lord, Lord Carlile, have said. I am not sure that the noble and learned Lord, Lord Falconer, has accepted my point, which to a certain extent is the same as that made by the noble and learned Baroness, Lady Butler-Sloss, that we do not wish to reduce or minimise the importance of the Bulger case. My point is that, where publicity is as extensive as it was following that case and where the publicity seems to be directed as in the example that the noble and learned Baroness gave, producing a result where children under the age of 12 would be sent to prison for life and be treated by ordinary criminal process, which is entirely unsuitable for children of that age, the Government must show moral leadership and change the position based on the evidence, rather than taking a political view that it might be easier to duck the question when the evidence is so clear. That is the point that I invite the noble and learned Lord to take. I understand that he supports the increase in the age of criminal responsibility, but I do not hear him saying that the Government must show the leadership to do that in spite of publicity to the contrary.
Lord Falconer of Thoroton (Lab)
I accept that the age of criminal responsibility should go up. I strongly endorse what everybody is saying about the Government and, in particular, I endorse what the noble Lord, Lord Marks, is saying about the Government showing leadership in this respect. I also endorse what he says about the Government needing to show leadership in standing out against campaigns that seek to criminalise people under 10 or, in the campaign that he was referring to, between 10 and 12. My point, which I keep coming back to, is that this Committee should not underestimate, or treat as simply got-up, campaigns concerning the justice system, which in some ways expands beyond the criminal justice system, in cases such as the Bulger case.
The Parliamentary Under-Secretary of State, Ministry of Justice (Lord Wolfson of Tredegar) (Con)
My Lords, these amendments concern youth justice matters. I will address each of them in turn.
Amendment 219B, tabled by the noble and learned Lord, Lord Falconer of Thoroton, would require the centralised monitoring of youth remand decisions made by the court and the laying of a report of findings before Parliament on an annual basis. I understand that the amendment’s purpose is to improve the scrutiny and monitoring of youth remand trends. However, that is precisely what our measures seek to achieve, as I will explain, while leaving the detail of operational processes to the various operational bodies. We think that this is the better way to do it.
The new measures will require the court to be explicit that they have considered not only the two sets of conditions but the interests and welfare of the child. Furthermore, while at the moment the court only has to explain the reason for remand in open court and specify it in the warrant and in the register, our new subsection (5)(za) requires that the court also gives the reasons in writing to the child, their legal representative and the youth offending team, which will enhance the ability of those justice partners to monitor the reasons for custodial remand.
Turning to the specific question put to me by the noble and learned Lord, Lord Falconer, on what arrangements are in place for monitoring courts’ decisions and whether statistics are readily available, as I have said, courts already state in open court their reasons for remanding the child to youth detention accommodation. That information is included on the warrant of commitment and the court register. Pronouncement cards from the Sentencing Council provide guidance to the judiciary on how to do that.
As for statistics, my department already publishes annual statistics on court outcomes on youth remand. The population on remand in the youth custody estate is published monthly. We have new IT systems being developed and, in light of those new systems, we will reconsider the best way to collect, analyse and, so far as is appropriate, publish the information that courts will now be required to provide in writing. However, it is best to leave that granular level of operational process to the entities doing the work on the ground, rather than to prescribe it in statute. Our intentions are certainly aligned. I am sure that the noble and learned Lord will appreciate the need for pragmatism in how best to achieve that.
Amendments 220, 221 and 221ZA seek to raise the age of criminal responsibility from 10 to 12 and to require the Secretary of State to complete a review of the age of criminal responsibility including, as my noble friend Lord Sandhurst explained, an assessment of the protected characteristics of children in detention, under the Equality Act. I listened very carefully to my noble friend and, I think it is fair to say, I set out the position on that in some detail on Monday. With respect, I am not going over that again. I hope I made the Government’s position clear on Monday.
I am grateful to the noble and learned Baroness, Lady Butler-Sloss for raising Amendment 220. I am aware, as she said, that she has brought this to the attention of the House on a number of previous occasions. As far as open ears are concerned, I assure the noble and learned Baroness that my ears are always open. I listened carefully to her speech and the speeches of the noble and learned Lords, Lord Brown of Eaton-under-Heywood and Lord Thomas of Cwmgiedd. I join other noble Lords in wishing the noble Lord, Lord Dholakia, who is absent, a speedy and full recovery.
I will set out the Government’s position on this issue. We believe that setting the age of criminal responsibility at 10 provides flexibility in dealing with children, allowing early intervention with the aim of preventing subsequent offending. Our primary objective when it comes to children, as I have made clear on previous groups, is to prevent children offending in the first place. Where there is offending, we need to provide the police and courts with effective tools to tackle it. Critically, having the age of criminal responsibility at 10 does not preclude other types of intervention—for example, diversion from the criminal justice system—where it would be a more suitable and proportionate response. To that extent, I agree with the noble Lord, Lord German, that diversion from the criminal justice system should be at the heart of how we approach children in the vast majority of cases.
When considering the most appropriate and proportionate response to offending by a young person, the maturity and needs of a child, as well as their age—to make the obvious point, a 12 year-old is not a 17 year-old—are always considered. We also consider protected characteristics in our work, as per the public sector equalities duty. This is borne out in practice. Most children aged 10 to 14 are diverted from the formal criminal justice system or receive an out of court disposal. The number of children aged between 10 and 12 years in the youth justice system has fallen dramatically since 2009, and we are keen for that downward trend to continue. Since 2010, which is more than a decade ago, no 10 or 11 year-olds have received a custodial sentence.
It is, however, important—to this extent, I adopt the remarks of the noble and learned Lord, Lord Falconer of Thoroton—to ensure that, when appropriate, serious offences can be prosecuted and the public protected. The horrific Bulger case has been mentioned by a number of noble Lords and I remember it clearly. I grew up in Liverpool and it shocked my native city to the core. Whether we are talking about the Bulger case or any case involving children, even the most serious, there is a distinct and separate sentencing framework for children aged 10 to 17, which recognises that they have their own specific needs that require a different and more tailored approach. That looks at age, so someone aged 13 is treated differently from someone aged 17 and a half. As noted by the noble Lord, Lord Carlile of Berriew, that pervades the approach of the criminal justice system to children. It is not a matter just of clothing, words or wigs; there is a fundamentally different approach tailored to dealing with children.
Baroness Butler-Sloss (CB)
Will the Minister deal with two points that he has not yet addressed? First, even Scotland has gone to the age of 12, and right across Europe it is at least 12 or 14. He has not dealt with why we are now, alone in Europe and in the United Kingdom, at 10. Secondly, it is contrary to the United Nations Convention on the Rights of the Child, and the Government seem to be ignoring that.
Lord Wolfson of Tredegar (Con)
I appreciate that there is a range of ages across Europe. We are at 10; some are at 12; some are at 14; some are at other ages. I have sought to set out why we believe that 10 is the correct age, given the way that our criminal justice system deals with children. I appreciate that what I have said will not have persuaded the noble and learned Baroness, but it is not simply a question of looking at the age but at how the criminal justice system as a whole responds to very young offenders.
As far as the United Nations Convention on the Rights of the Child is concerned, Her Majesty’s Government believe that we are in compliance with our international obligations. Indeed, as the noble and learned Baroness will know, that convention was the subject of a recent Supreme Court decision on the different ways in which England—or to be more precise, the UK—and Scotland, which wants to incorporate it into domestic legislation, have applied that convention.
Baroness Sater (Con)
I thank my noble friend the Minister for his response. On the jurisdiction of under-18 year-olds, it does not address the fact that they will not get all the wraparound services and support from the youth court and youth practitioners. Furthermore, if they go to the adult court, they will still not get a referral.
Lord Wolfson of Tredegar (Con)
I am grateful to my noble friend for the question, and for taking the time to discuss it with me in the past. Because the offender is 18 at the time of the case and of the sentence, the system has to respond to the fact that they are now adult. It may well be, in some cases, inappropriate to lump that adult in with children. Some sentences and responses that the youth court can give to children would be inappropriate for someone who is now an adult of 18. I suggest that the fact that the court starts with the sentence that would have been appropriate at the time of the offence, and then takes into account all other relevant factors, means that we deal with these cases suitably, bearing in mind the time gap before sentencing during which the offender has reached legal maturity.
Lord Falconer of Thoroton (Lab)
My amendment was the monitoring amendment and was not the heat and burden of this debate. I beg leave to withdraw the amendment.
The Deputy Chairman of Committees (Baroness Pitkeathley) (Lab)
I cannot call Amendment 221ZA, as it is an amendment to Amendment 221.
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment changes “pupils” to “students” to refer to those attending a secure 16 to 19 Academy. No difference of meaning is intended; the change is to avoid confusion arising from the fact that “pupil” is defined in the Education Acts to refer to those attending a school (and a secure 16 to 19 Academy is not a school).
Lord Wolfson of Tredegar (Con)
My Lords, Amendments 222 and 223, which I move today on behalf of the Government, are technical amendments to Clause 139, which clarifies that 16 to 19 academies can provide secure accommodation and allows for the establishment and running of secure 16 to 19 academies to be treated as a charitable purpose. The amendments, as can be seen from the Marshalled List, are a technical tweak, and will have no practical impact on the children or young people placed in these secure academies, or on how the academies are run. They are simply there to ensure consistency with other education legislation. “Pupil” is defined in the education Acts to refer to those attending a school; 16 to 19 academies are not, in the legal sense, schools, and “student” is the standard term used in the context of such academies.
I am conscious that this group also contains amendments from the noble Lord, Lord German, on the organisations which can establish a secure school, and from the noble Lord, Lord Ponsonby of Shulbrede, on local authorities’ secure accommodation provisions. I propose, if the Committee finds it helpful, to pause my remarks now, having introduced my amendments, and allow other noble Lords to speak to those amendments, and then I will respond. I see some nodding heads. If that meets with the Committee’s approval, I will sit down, having formally moved my amendments.
Lord Falconer of Thoroton (Lab)
I am going to talk about Amendment 223B onwards; Amendment 223A comes first, but I am happy to start with those.
Amendments 223B to 223F have been suggested by the Mayor of London’s office to place a new duty on relevant local authorities in England to convene a new secure accommodation local partnership board that would assess the need for secure accommodation and develop a strategy for tackling any shortfall in secure accommodation. There is, as everybody knows, a significant lack of secure beds in London for young people who come into contact with the criminal justice system. This results in them being dispersed across the country, far away from their families and the professionals committed to their care and well-being.
While this is a particular concern in London, it is also the case in other parts of the country. There are only 15 secure children’s homes in England and Wales, and none in the London area. The recent decision of the Ministry of Justice to remove all children from a key institution detaining young offenders in the United Kingdom—namely, the Rainsbrook Secure Training Centre—meant that more London children were sent away from where they lived. They are being provided with neither the care nor the welfare that they need as vulnerable young people. The recent critical inspection report on the Oakhill Secure Training Centre, alongside the decision to close Rainsbrook, also raises worrying concerns about the future of this type of facility.
It is crucial that such provision is available for those who might be placed there on welfare grounds and for those within the criminal justice system. Amendments 223B, 223C, 223D, 223E and 223F, in the name of my noble friend Lord Ponsonby, give effect to this proposal.
Lord German (LD)
My Lords, I apologise for being slightly out of turn; I will speak to Amendment 223A in my name and that of my noble friend Lord Marks, on secure accommodation and local authority provision. In December 2016, the Government committed to phase out juvenile young offender institutions and secure training centres and to replace them with a network of secure schools. These have since been renamed secure 16 to 19 academies. Legally, they will be approved by the Secretary of State for Education as secure accommodation and are defined in the Bill as “secure children’s homes”.
Lord Carlile of Berriew (CB)
My Lords, it is a pleasure to follow the noble Lord, Lord German. I know that he has an immense amount of experience in matters around education, from both his personal experience of teaching in earlier decades and his work in the Welsh Assembly Government. I probably support his amendment, but I am much less interested in the amendments here than in achieving a shared purpose, which is that children who are in custody have the chance of a quality education which will enable them to go on to higher education, where appropriate, good apprenticeships and other forms of training which will give them a decent chance in life—most of them not having had a chance in life. I am afraid it is a truism, at least in my experience of visiting many institutions holding children, that for many of them, that institution is the most comfortable and secure place, emotionally, that they have ever lived. That is a sad commentary on their situation.
I carried out some voluntary work for the Howard League some years ago, and it involved visiting Oakhill, Rainsbrook and, indeed, Feltham—a place which has been through good and bad patches over the years but, from what I hear from people who work there, is at the moment pretty challenging and not providing children with a particularly good education.
The ambition that we surely all share is that there should be a consistent level of good education throughout those institutions. I will give an illustration of why. When I was doing the voluntary work for the Howard League, of which the current president is another Member of your Lordships’ House, the noble Lord, Lord Macdonald of River Glaven—I am very happy to see him in that role—I went to one of the institutions that I have named. I was taken around and a boy of about 16 asked me to go into his room, as he called it. I went into his room and all over the wall there were maths certificates, including a grade A GCSE maths certificate. I said something really silly like, “You must be very good at maths.” He said, “I love it, sir. I want to be a maths teacher when I leave this place.” I do not know what happened to him, but he certainly had the ability to be a maths teacher. The reason he got that maths GCSE was because there was one really inspired teacher in that institution who spotted his talent at maths and had taken it to that level. I said to this boy, “Did you like maths when you were at school before you came here?” He replied, and I will never forget these words: “I never went to school, sir.” The capacity of education in these institutions and the opportunity it provides are enormous, but it has to be consistent.
Charlie Taylor, who has been referred to in this debate, did some very valuable work. I was very fortunate in that I was a consultee for him from time to time. He absolutely shares the views I expressed in the last few minutes. I ask the Government to accept that the ambitions I have expressed are shared by the Government too and that, whatever we call these institutions, whoever runs them—I do not really care, to be frank, as long as they reach the requisite standard—will try to reach standards that have been reached in the past. Noble Lords will remember Peper Harow, which was a very fine institution run in the voluntary sector by a number of trustees who would have been familiar in some way or another to Members of your Lordships’ House. It came to a slightly abrupt end because there was an accident there, but people who left Peper Harow, having had their education, commonly went straight to university and achieved university degrees, or did other training that gave them a good life after custody.
I say to the Minister: please can we have an assurance that we are not getting bogged down in process and the name we give to these educational institutions, and that we are actually trying to achieve a gold standard of quality with young people who are bored of being in an institution and for whom education is a really welcome change if it is good enough?
Baroness Chakrabarti (Lab)
My Lords, I am sorry, I was looking around the Chamber to see who was poised and trying to be too polite. It is an absolute pleasure to follow the noble Lord, Lord Carlile of Berriew, who many members of the Committee will associate with his legal expertise, but it is to be remembered that he has a considerable track record, to say the least, in matters of penal reform.
It is also a pleasure to have my name associated with this amendment in the names of the noble Lords, Lord German and Lord Marks of Henley-on-Thames. It seems totally anomalous that local authorities should be excluded from giving this provision, for all the compelling reasons given by the noble Lord, Lord German, about the expertise that they have accumulated in relation to education, children, care and so on. It can be only an ideological justification—I must not be too smug about ideology because I have a little of my own. Although there are always political debates about the role of the state in relation to all sorts of goods and services, most people, across politics and across the Committee, have some sort of notion of the irreducible core of the state. Personally, I think that, as with policing and the Army, incarceration ought in general to be a primary responsibility of the state itself, for obvious reasons to do with the vulnerability of those incarcerated and the responsibility, including democratic responsibility, of politicians, whether at local or national level, in relation to powers of coercion and the incredible vulnerability of people who, of course, cannot even vote.
Lord Marks of Henley-on-Thames (LD)
My Lords, our first aim with Amendment 223A, to which I have added my name, is to ensure that secure academies may be run by local authorities. The present position is that, under the Academies Act, the local authority may not maintain a school that becomes an academy. The result is, as my noble friend Lord German said, to prevent local authorities running secure academies, apparently in the interests of consistency between secure academies and other academies.
Our amendment would enable a local authority to play its part. However, it is entirely non-prescriptive and does not require secure academies to be run by local authorities. It simply permits them to be so. We believe that local authorities have a very important part to play in the running of secure academies, with the very best prospect of success in educating, training and rehabilitating young offenders.
The noble Lord, Lord Carlile of Berriew, mentioned Charlie Taylor. He has always taken and expressed the view that education for young offenders is at the heart of youth justice, and at the heart of reform and rehabilitation. We have considered in Committee the role of local authorities in youth justice at a number of levels and in a number of spheres. Education is, of course, at the forefront, but we should also not underestimate the importance of the local authority role in housing and social services. Both departments have a great deal to do with the criminality of young people. There can, we suggest, be no justification at all for ruling out local authority involvement in these secure academies.
I agree with the noble Lord, Lord Carlile of Berriew, that generally we should be keen to avoid dogma and that what we are doing should be about outcomes. Nevertheless, the second purpose of our amendment is to ensure that secure academies are run on an entirely altruistic basis by not-for-profit organisations. The purpose of this part of the amendment is to ensure that secure academies must be run not for profit but for the good of those who attend them as students.
We have all seen the difficulties that befell the probation service under the Grayling changes, which have since been abandoned. Then the larger part of the probation service was shunted off to community rehabilitation companies, and that led to a decline in voluntary sector involvement, which is particularly important in this area. A failure of collaboration with local authorities and an excessive and single-minded pursuit of profit was to the detriment of the clients that the CRCs were established to help and look after.
I do not believe for a moment that that is in the Government’s mind, but it is a danger that may be inherent in the present proposals, and we suggest that the care of damaged young people who have been sent to secure academies by the courts should never be in the hands of organisations run for profit.
Baroness Blower (Lab)
My Lords, it takes a very particular kind of person to be a teacher, but it takes a much more particular kind of person to work in an institution with young people who are clearly already damaged when they arrive. The idea that the Government appear to be taking—a rather dogmatic view about how 16 to 19 provision should be run, in terms of there being only academies and only reflecting the way academies are seen in law in the schools sector—seems to be completely wrong.
It is obvious that the profit motive simply cannot function in this type of provision. Teachers, whether in secure accommodation or other places, are not as well paid as they should be, but the fact is that they are not motivated in general by the level of their salary. Therefore, there is absolutely no reason why we should think that anyone affording that provision should be motivated by profit.
My own experience of young people of this type is that I did, very many years ago, work in a non-custodial, non-residential setting for young people who were at risk of care or custody. I have to say that they were all at risk of custody. But the fact that I worked in a local authority provision, where we were able to work very closely with the youth offending team, our local social services and our probation service, and all of our play therapists and other types of therapists, meant that, in general, it was a very successful provision.
I have, like the noble Lord, Lord Carlile of Berriew, had the opportunity through my union experience to visit teachers working in a whole range of institutions—some of which, I am sorry to say, no longer function. This type of provision, as my noble friend Lady Chakrabarti said, should be at the irreducible core of what the state does and affords for some of our most vulnerable young people. For that reason, I am very happy to support the amendments.
Lord German (LD)
My Lords, I am very grateful to those who have spoken in this short debate. Clearly this amendment is at the centre of this group of amendments. In summing up what everyone has said, I would say that the direction everyone has travelled in is not that these schools or academies should be provided by local authorities, but that they should be given the right to tender to provide those schools or academies.
The judgment that the noble Lord, Lord Carlile, made, was that it does not matter who runs them, providing they get the very best education for these very vulnerable children. The standard of education is what is important, not who runs them. At present, local authorities are excluded simply because there is a view that anything called an “academy” in England cannot be run by a local authority, which seems to create an absolute block to the opportunity for everyone in these institutions to have the best opportunities for life and education.
As the noble Baroness, Lady Chakrabarti, said, these are the most vulnerable of children and young people; their lives and futures are at stake. The noble Baroness, Lady Blower, talked of the qualities of the teachers. These teachers have to be the very best, because they are facing the most difficult of circumstances and it becomes a real challenge. It requires a very special person indeed to devote their life to this sort of education. Where you find the best teachers is in the quality of the tender exercise for these establishments.
Excluding local authorities because they breach the Government’s standard that any academy must not be run by a local authority seems to miss the point. My noble friend Lord Marks talked about the experiment with the rehabilitation companies. A lot of effort went into those. The one thing that was totally absent at the end was the engagement of the charitable and voluntary sector. In other words, because they were driven by having to meet a contract, they were not driven by providing the best service for rehabilitation. Quite rightly, that system has now been overturned.
It drives one to think that, if you have as your goals what is best for the child and what are the best services you can provide, excluding those with the most expertise in this area seems simply crazy. I hope that the Minister will be able to address these matters and take on board the whole point of these amendments, which is not to prescribe local government but to offer it the opportunity where it can compete, providing it can offer the best. What matters is the best for our children, not who should run the service.
Lord Wolfson of Tredegar (Con)
My Lords, I first turn to Amendment 223A from the noble Lord, Lord German, which would allow local authorities to “establish and maintain” secure academies and prevent any for-profit corporation doing this.
Dealing with those points in turn, first, we are not aware of any specific legislative barrier to the provision of secure 16 to 19 academies by local authorities. However, it is government policy that academy trusts are not local authority influenced bodies. As a result, no academy in England is operated by a local authority and our position here is to mirror academies’ policies and procedures in secure schools to the greatest extent possible. That said—
Lord Marks of Henley-on-Thames (LD)
I am grateful to the Minister for giving way. Has he had regard to Section 6 of the Academies Act, which provides that a local authority must cease to maintain a secure school if it becomes an academy? That seems to have the effect of ruling out local authority involvement, even if it operates in a slightly circuitous way.
Lord Wolfson of Tredegar (Con)
It might well be that it operates in a slightly circuitous way. I have not looked at that section myself. Let me look at it after I sit down. If I need to upgrade, so to speak, what I have said, I will write to the noble Lord, because I do not want to understate the position if I have inadvertently done so. I will look at the section later—I hope, today.
The noble Lord, Lord Carlile of Berriew, said that it is not so much about the name of the institution as about what goes on within it. On that, I strongly agree, as I do on the importance of education in this context, especially in the example given by the noble Lord, of somebody who it appears had not had the benefit of any education before. That is therefore especially appropriate.
At the same time as what I said earlier about local authorities, it is right to say that local authorities have a statutory duty to safeguard and promote the welfare of children in their local area. We would therefore expect secure school providers to work closely with local authorities in relation to the well-being of children in their care. It is important to note also that secure children’s homes, which can be run by local authorities, remain an important part of the current and future youth custodial estate.
Let me deal particularly with the profit motive, which seemed to lie at the heart of a number of contributions to this debate. As academies, secure 16 to 19 academies will be state funded with the core charitable purpose of providing education for the public benefit. All academies, including 16 to 19 academies, are part of an academy trust, which is a not-for-profit charitable entity and, as such, cannot make a profit—or, to be more precise, any profits which are made have to be ploughed back into the purpose of the trust. Secure schools will always be run by non-profit organisations. I therefore hope, in light of what I have said, that it will be appreciated that the second part of this amendment, proposed new subsection (9), preventing profit corporations establishing or maintaining these academies, is unnecessary.
On Amendments 223B to 223F, presented to the Committee by the noble and learned Lord, Lord Falconer of Thoroton, I have assumed that these amendments are intended to apply to children looked after by local authorities, but it is worth noting that secure accommodation is used more widely, including for children who are detained by the police and for children who are sentenced or remanded as part of criminal court proceedings.
Local authorities have a duty under the Children Act 1989 to ensure sufficient appropriate accommodation for all the children they look after. I recognise that some local authorities have found it difficult accessing in practice the most appropriate accommodation, particularly for children with the most complex needs. The lack of available and suitable placements for those most vulnerable children is extremely concerning and is something which I and the Government take seriously. We are taking significant steps to support local authorities to fulfil their statutory duties. A programme of work is starting this year to support local authorities to maintain existing capacity and expand provision in secure children’s homes. That means that children can live closer to their previous home and in provision which best meets their needs.
Let me deal specifically with Rainsbrook, to which the noble and learned Lord referred. The situation there is completely unacceptable. We acted decisively to empty the site. All children have now been removed from Rainsbrook. We transferred them to alternative appropriate accommodation within the youth secure estate. We are working through the contractual options with MTC on the future of that contract. When we have completed that work, we will make a further announcement.
In response to the recent concerns about performance at Oakhill, the former Lord Chancellor commissioned Ofsted to undertake a monitoring visit. That took place on 13 September. The report was published within a month, on 11 October, and noted concerns that inspectors had had. Having subsequently attended the centre for a full annual inspection at the beginning of October, Ofsted, together with the Chief Inspector of Prisons and the Care Quality Commission, invoked the urgent notification process at Oakhill on 14 October; that is, within the last month. On the 11th of this month, a response was published to Ofsted and the accompanying action plan, and we are now considering plans to ensure sufficient accommodation for those children at the site.
The spending review announced another £259 million to continue the programme to maintain capacity, expand provision and support local authorities in this regard. There is also the independently-led care review to support improvements to children’s social care and ensure that good practice is applied to every child. That review is expected to be published in the spring. I do not want to pre-empt it now, but we are alive to the particular needs of the children in this cohort.
I have received a note—I will keep my word to look at this matter again later—which indicates that the noble Lord, Lord Marks, may have erred. It is such an astonishing proposition that I will check it for myself later. I am told that he may have nodded in the sense that Section 6 relates to schools being converted to academies. It has no impact on local authorities entering into funding agreements with the Secretary of State. Whether the noble Lord has misunderstood, or whether the note I have been provided with is somewhat cryptic, I will keep my promise to look at it myself later in the day.
Lord Falconer of Thoroton (Lab)
The Minister mentioned £259 million in relation to the secure training programme. I may have not quite heard what he said. Is that new money or is it just maintaining the existing amount of money per annum?
Lord Wolfson of Tredegar (Con)
My understanding is that the £259 million was announced in the spending review to continue the programme to maintain and expand capacity in both secure and open residential children’s homes. I am not able to say any more than that; it might be a question for my Treasury colleagues to clarify. However, I am also able to clarify it to the noble and learned Lord. Perhaps I can drop him a line on that specific point.
Lord Marks of Henley-on-Thames (LD)
Before the Minister sits down and before I admit to nodding, the point he made is why I referred to the operation of Section 6 as being possibly circuitous. It seems that in certain circumstances it may well apply, and it may well apply more generally.
Lord Wolfson of Tredegar (Con)
The reason why I did not say it in terms that I was certain that the noble Lord had got it wrong was precisely that point. It seems that we might be approaching this point from different ends, but I will look at it myself and, if necessary, I will drop noble Lords a note. It may not be necessary given what has now been said.
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 128, line 15.
Lord Paddick
Member’s explanatory statement
This amendment would raise the threshold for the standard of proof required to impose an SVRO, from a civil standard (the balance of probabilities) to the criminal standard (beyond reasonable doubt).
The Deputy Chairman of Committees (Lord McNicol of West Kilbride) (Lab)
I call the noble Baroness, Lady Meacher.
Lord Paddick (LD)
My Lords, with the leave of the Committee, I am going to make a slightly unusual request. The noble Baroness, Lady Meacher, cannot unfortunately be in her place. She was unable to be in the House at very short notice. However, the noble Baroness, Lady Armstrong of Hill Top, needs to chair a Select Committee at 3 pm, so I wonder if I could formally move Amendment 224 and then allow the noble Baroness, Lady Armstrong, to make her speech. On that basis, I beg to move Amendment 224.
Baroness Armstrong of Hill Top (Lab)
My Lords, I am enormously grateful to the noble Lord, Lord Paddick. I am chairing a Select Committee. I will come back for the rest of the debate, but I have to come back from Millbank, and I am not as fast as I used to be.
I want to be brief, but I return to an issue that I have consistently raised with the Minister over several Bills: the position of girls and women who are being sexually exploited, abused and subjected to violence. I want to help the Government to get out of the hole they are digging themselves into, where they are losing what they learned during the passage of the Domestic Abuse Bill about coercive control and about what happens to women who have been traumatised by this sort of behaviour. I want them to think about that in relation to my amendment on these very difficult serious violence reduction orders. I am not going to intervene in the rest, because I will support them if there is a vote at Third Reading, but this is a very specific amendment.
I realise the pressure on the Minister. I hope she has had a chance to look at the very short video that I sent her of a young woman from Newcastle—so the Minister should recognise the accent—telling of her inability to tell anyone of the activity of the perpetrator who was grooming and abusing her until she had been sentenced for something ridiculously small that was technically nothing to do with her abuse. Once she got to see a probation officer, she really felt that she had to say something about why she had been involved in criminal activity, and she was then referred to the charity Changing Lives; I ought to say that I still mentor the person who deals with women in that charity. The young woman from Newcastle was then able to talk about the abuse that she had suffered, the effects of what the perpetrator had done to her, and why this had led her to behave in the way she did.
It does not take much imagination to recognise that women who have been trafficked, groomed and subjected to physical, psychological and sexual abuse are not going to say what they know about the criminal activity of their abusers without themselves being supported and protected by those who understand trauma and what has happened to them. This amendment seeks to remove the “ought to have known” provision that will mean that women and girls who are judged that they “ought to have known” that someone in their company was in possession of a bladed article or offensive weapon could face two years’ imprisonment for a breach of the order’s terms. This simply criminalises women who are already being subjected to appalling criminal abuse. I do not believe that that is what the Government want to do. We know how we can change women’s life chances in these circumstances. We can do it. I work with people who do it, but this is not the way. This will not help them into a more stable and secure life. This will drive them into more criminal behaviour and into entrenching their problems.
I gather that this is seen as an extension of the joint-enterprise laws. The problem the Government have is that these laws have brought women into the criminal justice system when they had no involvement in the alleged offence. Research has found that in 90% of joint-enterprise cases against women, they had engaged in no violence at all, and in half of the cases they were not even present at the scene. We also know from research that more women and girls from BAME backgrounds are likely to be picked up under this sort of provision, and the Government really need to think about that, too.
This provision was not included in the consultation on these orders. I really do think that the Government did not have the opportunity to think the provision through in relation to the women and girls I am talking about. They have the opportunity to quietly drop it now before Report, and I hope and trust that they will.
Lord Marks of Henley-on-Thames (LD)
My Lords, my noble friend Lord Paddick will speak from the Front Bench for my party on this group, but he has quite a lot to say and, in view of the time, he has asked me to speak now, so with your Lordships’ permission or agreement, I shall address a number of points where serious violence reduction orders—SVROs for short—offend against cardinal principles of justice that our criminal law generally holds to be of the greatest importance.
I say at the outset that we should be in no doubt that an SVRO is to be a criminal sanction. That is, first, because of the requirements and prohibitions it imposes on an offender who is made subject or is to be made subject to such an order. It is, secondly, by reason of the draconian powers exercisable by the police in respect of an offender who is to be made subject to such an order, which are the equivalent of a criminal sanction on that subject. It is, thirdly, because the exposure of an offender subject to an SVRO to further criminal sanctions for the breach of any conditions attached to it amounts to a criminal sanction in its imposition.
Against that background, my first objection of principle is that it is wrong that a criminal sanction should be imposed independently of any criminal offence. Amendment 225, in the names of my noble friend Lord Paddick and the noble Baroness, Lady Meacher, is addressed to the novel and unwarranted approach to carrying a bladed article in the proposed new subsections 342A(3)(b) and (4)(b). As their explanatory statement makes clear, carrying a knife is not of itself a criminal offence, yet these provisions would render an offender liable to be made subject to an SVRO if either the offender or a joint offender with that offender had a knife with them, for whatever reason, whether the carrying of that knife was an offence or not. These orders as proposed would impose criminal sanctions for conduct which did not amount to an offence known to the law. That is contrary to principle in a profound and unacceptable way.
My second objection is that our criminal law generally insists on proof of guilt to the criminal standard, beyond reasonable doubt, before any criminal sanction can be imposed. Certainly, the civil standard of proof has its place in the criminal law, but that is generally when the law imposes a burden of proof upon the defendant to establish the facts of a defence which, if proved, would justify conduct that would otherwise be criminal. However, what is proposed here is that a criminal sanction can be imposed on the basis of proof, to the civil standard only, of the primary facts giving rise to that sanction. Again, that is contrary to principle and is calculated to water down, even to undermine, one of the most fundamental principles of our criminal law—one that I venture to suggest is probably the best known of any of those principles among the general public.
My third point concerns the unwarranted extension of the law relating to joint enterprise embodied in the proposed new subsection 342A(4). That is why I have added my name to Amendments 226A and 226B just spoken to by the noble Baroness, Lady Armstrong of Hill Top. I do not understand how it can be contended that an offender should be subject to criminal sanction if that offender did not know that a bladed article or offensive weapon would be used by a joint offender in the commission of an offence on the basis that he merely “ought to have known” that fact. That is proposed new subsection 342A(4)(a).
Proposed new subsection 342A(4)(b) is even worse: an offender is to be subject to the criminal sanction of an SVRO because a joint offender had a bladed article or offensive weapon with him at the time of the offence, even if the offender did not know that, simply on the basis that he “ought to have known”. And all this to be proved to the civil standard only, notwithstanding that possession of a knife is, of itself, not a criminal offence.
That is not all. I shall be supporting the noble Lord, Lord Ponsonby, in opposing Clause 140 standing part of the Bill because, in addition to all that I have said so far, SVROs are to be imposed without any right to trial by jury; they are to be imposed by a judge alone, following conviction. As for the evidence to be adduced to support their imposition, in the words of proposed new subsection 342A(8), it is not to matter
“whether the evidence would have been admissible in the proceedings in which the offender was convicted.”
That anomaly is the subject of Amendment 231, in the name of my noble friend Lord Paddick. I simply ask, in connection with these SVROs, where are we heading. It is in the wrong direction for our criminal justice system.
Royal Assent
Wednesday 17th November 2021
(2 years, 5 months ago)
Lords ChamberRead Full debate Read Hansard Text Amendment Paper: HL Bill 66-I Marshalled list for Consideration of Commons Reasons - (16 Nov 2021)
Offenders: Pregnant Women
(2 years, 5 months ago)
Lords ChamberRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Baroness Hussein-Ece
To ask Her Majesty’s Government, further to the Prisons and Probation Ombudsman’s Independent investigation into the death of Baby A at HMP Bronzefield on 27 September 2019, published on 22 September, what assessment they have made of (1) their policies, and (2) the sentencing guidelines, for pregnant women offenders.
The Parliamentary Under-Secretary of State, Ministry of Justice (Lord Wolfson of Tredegar) (Con)
My Lords, this was an appalling event. In consultation with health partners and contracted providers, we have taken a range of immediate and long-term actions locally and nationally to prevent it happening again, including a new policy on pregnancy in women’s prisons. Remand and sentencing decisions are matters for the independent judiciary. We are taking steps to ensure that courts have relevant information, including on pregnancy where known, and we are investing in alternatives to custody.
Baroness Hussein-Ece (LD)
I thank the Minister for the positive response the Government have given to the ombudsman’s report on this shocking case, in which a troubled teenager who was on a local authority at-risk register and on remand was left to give birth on her own in a prison cell, where the baby tragically died. Sadly, we learn that this was not an isolated incident, but we do not know the extent. So why does the Prison Service not release comprehensive data on miscarriages, stillbirths and baby deaths?
The ombudsman’s report said:
“We consider that all pregnancies in prison should be treated as high risk by virtue of the fact that the woman is locked behind a door for a significant amount of time.”
In light of this, can the Minister tell me whether the Government will use persuasion and statutory force to ensure that the welfare of unborn babies and children must be a primary consideration for the courts when making bail and sentencing decisions?
Lord Wolfson of Tredegar (Con)
I will pick up on that last point first. We are seeking to ensure that courts have all relevant information when making bail and sentencing decisions. The default is that, if there is no reason to keep somebody on remand, they must be given bail unless there is a good reason why they should not have bail. When it comes to sentencing, custody is always the last alternative, and pregnancy is a mitigating factor.
As far as prisons are concerned, we have accepted all the recommendations in the ombudsman’s report. We have put a new policy in place; prisons have six months to implement it.
The Lord Bishop of Gloucester
My Lords, Committee on the Police, Crime, Sentencing and Courts Bill was grateful to hear the Minister say on 1 November that
“there has been a revolution, a real sea change, in the judiciary. They really ‘get it’ when it comes to female offenders and primary carers.”—[Official Report, 1/11/21; col. 1042.]
Following on from what we have already heard, can the Government provide evidence on the extent to which sentencing guidelines on the mitigating factors associated with pregnancy and primary caring are being followed by sentencers? Also, can the Minister provide information on how many sentencers have completed training on safeguarding children when sentencing primary carers?
Lord Wolfson of Tredegar (Con)
The obligation to have regard to whether somebody is a primary carer is part of the sentencing guidelines, which are mandatory and must be followed by all sentencers in all parts of the courts system. On whether this is being carried through, I point out to the right reverend Prelate that the number of women in custody has been falling consistently; we think this indicates that courts are following the guidelines properly.
Lord Hunt of Kings Heath (Lab)
My Lords, one of the most important recommendations of HM Inspectorate in looking at this tragic case was directed at the National Health Service, because the NHS has clear responsibilities in relation to not just maternity services but other services. Is the Minister satisfied that the NHS is rising to that challenge? What levers does he have if he finds problems with that?
Lord Wolfson of Tredegar (Con)
The noble Lord is absolutely right to identify that this is an area where we need my department and the NHS to work together. The important thing is that women in prison must have access to the same standard of service that they would have in the community. We have put together a board, which goes across the MoJ and the Department of Health and Social Care, to do exactly what the noble Lord identifies: namely, make sure that our health partners are as focused on this as we are.
Lord Jones of Cheltenham (LD) [V]
My Lords, I pay tribute to the right reverend Prelate the Bishop of Gloucester—my bishop—for her valuable work with prisoners. Should we not have for offenders more modern facilities that work to educate and rehabilitate? Will the Minister look again at the study Rehabilitation by Design, which shows best practice in other countries and which I have mentioned in this House before?
Lord Wolfson of Tredegar (Con)
The noble Lord is absolutely right that the design of prisons is important in this context. We are providing more, newer and better-designed places in the women’s estate. That has been informed by design to include things such as windows without bars, smaller units and bigger association spaces. We are also trying to remove dark, narrow corridors and blind corners, which can trigger responses. We must remember that most women in the prison estate have had very difficult pasts. We are thinking about the way we design prisons to minimise additional trauma for women when they are in prison.
Lord Loomba (CB)
My Lords, inhuman treatment and neglect are not part of any sentence handed down by British courts to anyone, let alone to pregnant women offenders. In view of the Baby A case, the circumstances of which are truly shameful, will the Government establish an independent monitoring service for pregnant prisoners to provide confidence that the standards of care are appropriate? Until that monitoring service is established, can the Minister tell us whether the Government will undertake to implement the ombudsman’s recommendations in full, and that the provision of care for such vulnerable women in our care will be pondered sufficiently?
Lord Wolfson of Tredegar (Con)
My Lords, there is rather a lot in that. As far as the ombudsman is concerned, we and the Prison and Probation Service have accepted and completed the implementation of the recommendations. We have set up the board, which I mentioned in response to the noble Lord, Lord Hunt of Kings Heath. We have put a lot of money into this area. I am not convinced that setting up another inspection body is needed; we already have a very robust inspection regime for prisons, with a specific focus on prisoners with additional vulnerabilities, including pregnancy.
Lord Falconer of Thoroton (Lab)
This is, as everybody who has read the report knows, a horrific case. I want to raise two issues. First, the Minister rightly said that the statutory position at the moment is that the same standard of care should be available in prison as is available in the community. The ombudsman’s report said that the midwife-led community approach is wholly inappropriate for a prison, where everybody should be treated as high-risk. Does the Minister not agree that the time is now right for a statutory duty to be placed on the prison authorities to ensure that the care provided is
“appropriate to a custodial setting”?
Secondly, and separately, eight prison officers came near to Ms A during the course of that horrific night and none of them spotted what was going on. Can the Minister tell us how many prison officers on duty that night had more than two years’ experience, and how many had more than five years’ experience? Our concern is that there is a lack of experience in the Prison Service. I gave the Minister some notice of this question, but not enough, probably.
Lord Wolfson of Tredegar (Con)
My Lords, I am afraid that I am not convinced that a new statutory duty is the way to resolve this. I think the statutory framework is sufficient. What we need to ensure is that the duties are actually implemented on the ground in prisons.
So far as the staff on duty are concerned, the noble and learned Lord did give me a little bit of notice for this, as he said, but not very much. I do not have the information to hand, but the ombudsman looked at this incident in great detail and did not raise as an issue either the sufficiency of the staffing levels or the experience of the staff on duty.
Baroness Brinton (LD) [V]
My Lords, following on from the previous question, I have a further one on the training of staff in prisons. If there are six months to implement the ombudsman’s recommendations, will this include some training for all staff in women’s prisons on what to do if they suspect that early labour has started?
Lord Wolfson of Tredegar (Con)
My Lords, all new prison officers working within the women’s estate will complete a new module on pregnancy, which is starting in January. We are also developing a two-day course for all staff working directly with pregnant women and mothers separated from young children, and that is part of our implementation strategy for our new policy for pregnant women in prison.
Baroness Jones of Moulsecoomb (GP)
I was going to ask about training, but I was glad to hear that answer. On a different topic—and forgive my ignorance here—within the sentencing guidelines, how much weight is given to the cost to society when a woman who is kept on remand for a short sentence then loses her home and her children, and the children have to go into care? She would have no home when she comes out, so she could not take them back. That is a cost to society. How much weight is given within the sentencing guidelines to that sort of issue?
Lord Wolfson of Tredegar (Con)
It is very important that the implementation of sentencing guidelines is a matter for independent judges and not government Ministers. What I can say is that judges and sentencers of all sorts have to consider the effect of the sentence not only on the person being sentenced but on people for whom they care. That will particularly apply to young children, and in the case of pregnant women it will also apply to the unborn child.
The Lord Speaker (Lord McFall of Alcluith)
My Lords, all supplementary questions have been asked. We now move to the next Question.
National Food Strategy Report
(2 years, 5 months ago)
Lords ChamberRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Baroness McIntosh of Pickering
To ask Her Majesty’s Government what assessment they have made of the conclusions of the report by Henry Dimbleby National Food Strategy: Part One, published on 29 July; when they will publish their response; and what steps they intend to take to implement the recommendations of the report.
Baroness McIntosh of Pickering (Con)
I beg leave to ask the Question standing in my name on the Order Paper, and I refer to my interests in the register.
The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
My Lords, the Government have already acted on the recommendations in Henry Dimbleby’s part 1 report with the announcement of the Covid winter support package and the recommendations on trade last year, which included putting the Trade and Agriculture Commission on to a statutory footing. We thank Henry Dimbleby for his independent review, including his part 2 report, published this year, which we will consider in the forthcoming government food strategy to be published in early 2022.
Baroness McIntosh of Pickering (Con)
It was an excellent report, and the national food strategy advocates upholding our own high standards in food production and that imports should meet these same standards. Given the fall in our self-sufficiency in food and the fact that tenant farmers will be in breach of their agricultural tenancies if they apply for any environmental schemes, will the Government ensure that these high standards of animal welfare and food safety that our farmers meet are met also in imported food products agreed under any free trade deals, to prevent substandard imports from putting our hill farmers in particular out of business?
Lord Benyon (Con)
I think I can give my noble friend some assurance here. Tenant farmers will be able to take out agreements under the sustainable farming incentive scheme, which begins being progressively rolled out next year. The Tenant Farmers Association has not raised any issues about tenancies preventing tenant farmers from entering into new environmental land management schemes. My colleague Victoria Prentis, the Agriculture Minister, met with the chief executive of the Tenant Farmers Association this week, and my noble friend’s concerns were not raised.
Baroness Lister of Burtersett (Lab)
My Lords, the food strategy emphasised the importance of free school meals for all disadvantaged children. Will the Government therefore commit now to making permanent, and widening, the welcome temporary concession which extended free school meals to children in some families with no recourse to public funds, as called for by the Children’s Commissioner for England, the Food Foundation and many others?
Lord Benyon (Con)
My Lords, the Government encourage all schools to promote healthy eating and provide healthy, tasty and nutritious food and drink. Compliance with the Requirements for School Food Regulations 2014 is mandatory for all maintained schools, and efforts are always made to make sure that children from low-income families have access to good, nutritious school meals.
Baroness Jenkin of Kennington (Con)
My Lords, more than half the calories the average person in the UK eats come from ultra-processed foods. Recent research has linked these foods to early death, poor health, weight gain and obesity. The national food strategy makes a clear connection between bad diet and poor health. One of its four strategic objectives is to escape the junk-food cycle in order to protect the NHS. While the move towards eating less meat is welcome for the health of both the individual and the planet, could my noble friend confirm that a vegan or vegetarian diet made up of mainly ultra-processed foods is just as bad for the individual’s health as for everyone else?
Lord Benyon (Con)
My noble friend is very knowledgeable on these matters, and she is absolutely right. Soya grown where rainforests used to exist and which may have also been the subject of many processes to make it palatable will be, by contrast, worse for the environment and the individual than locally produced meat from grass-fed animals that may be not only part of a healthy, balanced diet but good for the environment.
Lord Oates (LD)
My Lords, I draw attention to my interests as set out in the register. Given the Climate Change Committee’s advice that we will need to reduce meat consumption as part of efforts to tackle climate change, will Defra’s response to the national food strategy include a commitment to sustainable alternative proteins, including cultivated meat, and will it commit to streamlining the novel foods regulatory approval process to reflect the urgency of our need to find alternatives?
Lord Benyon (Con)
The Government can encourage people to eat sensibly and promote good, balanced and healthy diets. The Government are not going to tell people what they should eat but will give them the information they need to have a healthy, balanced diet and provide the means by which vulnerable groups can have this. This will be in the food strategy, which will be published next year.
Lord Vaizey of Didcot (Con)
My Lords, I am very excited by the imminent publication of the food strategy. How many meetings has my noble friend had with his counterparts in the Department for Education? I am sure he agrees with me that the food strategy is an education issue. When he answered the earlier question and talked about mandatory standards, I am sure he also agrees that we need enforcement of those standards, as only 40% of schools currently meet them.
Lord Benyon (Con)
My noble friend makes a very good point. I personally have not had any such meetings, but my colleague Victoria Prentis, who is the Minister responsible for this area, has had meetings across government and will continue to do so. He is absolutely right that the mandatory standards are in those regulations, and the Government are constantly trying to find ways to make sure that they are fully complied with.
Baroness Boycott (CB)
My Lords, today there is another depressing result from the national child measurement programme, which pointed out that there was a 4.5% increase during the pandemic in the proportion of children aged four to five who are obese. Obviously, the existing government obesity strategy is really not working, which is why we need the food plan to be implemented. Assuming that we publish a White Paper in response to the strategy, will that lead to a food Bill? That is what we urgently need.
Lord Benyon (Con)
The food strategy will be in the form of a White Paper, which is usually the precursor to legislation, and this House will be kept fully informed about this. The obesity strategy has been developed through a huge amount of work, not least by outside bodies such as the Centre for Social Justice. It is there to help people already living with obesity, including funding weight management services, but also to create a food environment and culture that makes it easy for everyone, regardless of their circumstances, to live a healthier life.
Baroness Hayman of Ullock (Lab)
We strongly support the recommendations that the report makes to ensure better access to healthy food for those on the lowest incomes. Can the Minister confirm that the Government will adopt without delay the calls to increase eligibility to free school meals and the value of healthy start vouchers as well as the extension of the holiday activities and food programme?
Lord Benyon (Con)
I entirely understand the points the noble Baroness makes. These are matters for other departments in government. We are working with them as part of our response to this important piece of work by Henry Dimbleby in the development of the food strategy. It will not just be something produced by my department; it will draw in all those issues from across government.
Lord Curry of Kirkharle (CB)
My Lords, a key recommendation of the Dimbleby report was that meaningful standards should be applied to imported food, consistent with our own domestic standards. Can the Minister confirm that the Government will support that recommendation? If so, how will it be applied retrospectively to the free trade deals with Australia and New Zealand?
Lord Benyon (Con)
My Lords, the UK Government have made a clear commitment that, in all our trade negotiations, we will not compromise on our high environmental protection, animal welfare and food standards. All agricultural products imported into the UK, including under free trade agreements, must continue to comply with our existing import requirements.
Lord Bethell (Con)
My Lords, the recent pandemic has demonstrated the severe urgency of cracking down on obesity in this country. There are thousands of people in ICUs with infectious diseases such as Covid, simply because they are too overweight. We must do something to address this national characteristic. What will the Minister do to assure us that he will take the steps necessary to crack down on things such as highly processed food? That would be an important first step on this road.
Lord Benyon (Con)
My noble friend has done much work in this field. The publication Tackling Obesity: Empowering Adults and Children to Live Healthier Lives takes forward a wide range of measures that all contribute towards reducing excess calorie consumption. These include, for example, measures to restrict the advertising of high fat, sugar and salt products. It is estimated that these measures could remove up to 7.2 billion calories from children’s diets in the United Kingdom over the coming years.
Baroness Ritchie of Downpatrick (Lab)
My Lords, for the avoidance of doubt, will the Minister indicate a specific date when the Government will produce their White Paper in response to the Dimbleby report, and the timescale for the subsequent legislation? Will this legislation be accompanied by resources in a cross-departmental way to implement the recommendations in the report, including access to free school meals for many children who are totally disadvantaged, particularly during the pandemic?
Lord Benyon (Con)
The second part of Henry Dimbleby’s report was published in July and the Government made a commitment to respond within six months. The noble Baroness knows that our department is running quite hot on food issues at the moment, but I have heard nothing to suggest that this timetable will not be met.
The Lord Speaker (Lord McFall of Alcluith)
My Lords, the time allowed for this Question has elapsed.
Independent Commission on the Constitutional Future of Wales
(2 years, 5 months ago)
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Lord Foulkes of Cumnock
To ask Her Majesty’s Government what discussions they have had with the Welsh Government about the independent commission set up by that Government to look at options for the future constitution of Wales.
Baroness Bloomfield of Hinton Waldrist (Con)
My Lords, the UK Government have not yet had any discussions with the Welsh Government regarding the independent constitutional commission; nor were we informed of its proposed structural content. But we were aware that this was a manifesto commitment. In subsequent written communication with the Minister for Intergovernmental Relations, the First Minister of Wales stated that he would encourage the commission to contact the UK Government, and we hope to be able to give evidence.
Lord Foulkes of Cumnock (Lab Co-op)
My Lords, does the Minister agree that, while the constitution is a matter reserved to this Parliament, it is helpful that the Welsh Government have set up this independent commission to make recommendations? However, if the governance of Wales, the governance of Scotland and the governance of Northern Ireland are considered in isolation, there is an increased risk of the break-up of the United Kingdom. So will the UK Government now consider some form of review of the governance of the whole of the United Kingdom, including England, in a systematic and coherent way, so that we can ensure the continued prosperity and unity of this United Kingdom?
Baroness Bloomfield of Hinton Waldrist (Con)
As always, the noble Lord makes a very compelling case. The UK Government are committed to protecting and promoting the combined strengths of our union, building on hundreds of years of partnership and shared history. This Parliament remains in charge of the balance between reserved and devolved competences, and we will continue to make sure that our constitutional arrangements remain fit for purpose and enable our institutions to work effectively together to deliver for citizens in every part of the UK. We have no plans for a UK-wide constitutional convention.
Lord Harlech (Con)
Will my noble friend the Minister tell the House how the UK Government assess the current state of relations with the Welsh Government?
Baroness Bloomfield of Hinton Waldrist (Con)
As a result of Covid, we have engagement at all levels of government, both at ministerial and official levels. Certainly, inter-ministerial relations between Michael Gove and the First Minister continue on a weekly basis. We will be happy to take part in this commission and we will continue to make the case for the union. The UK Government remain focused on supporting Wales’s recovery from the pandemic and we will continue to work on this.
Lord Thomas of Cwmgiedd (CB)
What engagement has there been with the Welsh Government on the distribution of what are known as levelling-up funds, in the light of assurances and statements made by the Minister during the ping-pong debate on 14 December, when we discussed an amendment designed to ensure agreement between the two Governments on the use of the funds to avoid the risk, which the House identified, of pork-barrel politics?
Baroness Bloomfield of Hinton Waldrist (Con)
We have indeed engaged with the Welsh Government on the new local growth funds. A lot of the engagement has been between MPs and their local authorities—not always of the same political hue. We have sought advice on projects at the shortlisting stage, including on deliverability and alignment with existing provisions, and we welcome the engagement to date. We look forward to further engagement in future rounds. A number of local authorities and projects have been pulled back to access the next round of applications, which will start in the spring.
Baroness Wilcox of Newport (Lab)
The independent chair of the commission told the House of Lords Constitution Committee on the committee’s recent visit to Wales that the notion of parliamentary sovereignty has not kept pace with the reality of devolution. Does the Minister recognise her Government’s policy of repeatedly encroaching on devolved areas, failing to respect the Sewel convention and short-changing the people of Wales when it comes to post-Brexit funds? I welcome the Government’s commitment to engage constructively with the independent commission. Will the Minister welcome the experienced and diverse range of commissioners announced yesterday by the Welsh Government?
Baroness Bloomfield of Hinton Waldrist (Con)
I do welcome the composition of the new commission. We respect and are fully committed to the Sewel convention and we work very hard to secure the support of the devolved Administrations for all legislative consent Motions. One of the difficulties when devolution was planned was that the Governments of Wales, Scotland and England were all of the same political party. We are working together to acknowledge our past difficulties and to get over the challenges that all the Brexit legislation has brought to us. I can assure the noble Baroness that engagement at all levels is still actively continuing.
Baroness Humphreys (LD)
My Lords, I welcome the Welsh Government’s establishment of the commission and the further announcement yesterday of the names of those appointed as commissioners. I was delighted to learn that they included the former Welsh Lib Dem leader Kirsty Williams.
Our democracy in Wales continues to evolve and the need for this commission has never been clearer. But on its own this commission will not solve the UK’s constitutional problems, and it will not save the union. How does the Minister envisage that the remainder of the UK could contribute to this process?
Baroness Bloomfield of Hinton Waldrist (Con)
Of course, it is for the commission itself to decide how to engage and conduct its inquiry, and whom to invite to participate in the process. As I have said, the UK Government will welcome the opportunity to provide evidence and to continue to make the case for the union. We shall continue to make sure that constitutional arrangements remain fit for purpose and enable our institutions to work effectively together to deliver for all citizens in all parts of the UK.
Lord Wigley (PC)
My Lords, the Minister will be aware that Professor McAllister, who along with Rowan Williams is leading this commission, has made it clear that it will be receptive to any evidence in support of independence for Wales. If, in the light of that, the Welsh Government were to propose a referendum on independence, would the UK Government accept the result of that referendum?
Baroness Bloomfield of Hinton Waldrist (Con)
Of course, I could make the point that Professor Laura McAllister has stood twice as a Plaid Cymru candidate, so I am not surprised that her comments in the Senedd were very different from those of the First Minister, who said that this would not be a consideration of the commission. While we are, of course, interested in its work, it would not be right for us to pre-empt any possible recommendations. I remind the noble Lord that, in a St David’s Day poll this year, 80% of respondents expressed their support for the union.
Lord Anderson of Swansea (Lab)
My Lords, surely we should acknowledge that the bold experiment of establishing a devolved system in a unitary state is not final. Therefore, what is the vision of the Government as they set about giving evidence to the commission? Will they go beyond the status quo?
Baroness Bloomfield of Hinton Waldrist (Con)
That is a question for later on in the process. I am delighted to take the question back to the department for a steer on what its response will be, but I reiterate that we are keen on pointing out all the advantages that Wales has had through the union, particularly during the Covid pandemic, with help for the Nightingale courts and the help of the Army for the ambulancemen. Wales has had a lot of tangible benefits, not least a huge increase in the amount of money given to it in the spending review—£18 billion, as opposed to £16.9 billion.
Lord Davies of Gower (Con)
My Lords, as was already mentioned, the constitution is a reserved matter and, as such, the findings of this commission will be of little value in a UK context. Does my noble friend the Minister agree that, in addition to the multi-millions of pounds of taxpayers’ money wasted on an airport purchase, to the axed M4 Newport relief road motorway project, which has cost Welsh taxpayers £140 million to date, and to the worst A&E record in the UK—I could go on—this commission is yet another futile spend, whose only purpose is to pander to the nationalist party for support? That is obvious from the choice of co-chair of the committee, who, as already has been mentioned, stood twice for parliamentary election for Plaid Cymru.
Baroness Bloomfield of Hinton Waldrist (Con)
My noble friend makes some good points. We do not know how much money has been spent on this commission, but it is a large commission and one can only assume that it has been a priority for the Welsh Government—I am not sure that the people of Wales have the same priority. I note that, in a recent poll in WalesOnline, in October—just before the spending review—of the top 10 concerns of the Welsh people, nine were in devolved areas. The last one was that the UK Government were not giving enough money to Wales—and I think we convincingly negated that argument in the spending review. However, one of the concerns was on infrastructure, and roads in particular. It is still disappointing that the Welsh Government will not allow the M4 relief road around Newport, which would unblock a lot of the problems in south Wales.
Lord Harries of Pentregarth (CB)
I would like to press the Minister on the question of the noble Lord, Lord Anderson. I am sure that she would agree that the relationship between the four nations of the United Kingdom and the London Government is not fixed and final—in recent years, there has been an indication of unease about that. Does she agree that this is a real opportunity for the Government to contribute to this commission, not just on a quick, politically orientated, ad hoc basis that has been cobbled together but with some serious, long-term thinking?
Baroness Bloomfield of Hinton Waldrist (Con)
There is a wonderful expression about Wales: it is a land of commissions, conventions and panels. Obviously, we will contribute seriously to this review, if asked to do so, but I recall from the Dunlop review that no intergovernmental review machinery is capable of resolving fundamentally different political objectives. But it is realistic to expect serviceable and resilient relationships, and that is what we should all be striving to achieve.
The Lord Speaker (Lord McFall of Alcluith)
My Lords, the time allowed for this Question has elapsed.
Stop and Search Powers
(2 years, 5 months ago)
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Baroness Chakrabarti
To ask Her Majesty’s Government when the Home Office will publish data on the use of stop and search powers for the year up to April 2021.
The Minister of State, Home Office (Baroness Williams of Trafford) (Con)
My Lords, as announced on GOV.UK on 25 October this year, data on the use of stop and search powers for the year to April 2021 will be published tomorrow.
Baroness Chakrabarti (Lab)
I am incredibly grateful to the Minister for that. She, like others, will have read newspaper reports just last week conveying suspicions that the data had been suppressed because the police Bill is going through Parliament. Similarly, there are concerns about the Government’s consultation on the Nationality and Borders Bill, the results of which have not yet been published. Will the Minister publish that data as well, certainly before that Bill comes before your Lordships’ House?
Baroness Williams of Trafford (Con)
My Lords, I am grateful for the opportunity to correct some of the inaccurate claims. The first was that the delay was due to a record level of data, but that was a misrepresentation by journalists; actually, the Home Office needed additional time to quality assure more granular record-level data. Secondly, the decision for delaying the statistics for the PCSC Bill was made by the head of profession, in line with the code of practice for statistics, and was announced at the earliest possible point on GOV.UK.
Lord Paddick (LD)
My Lords, I understand what the noble Baroness has said, but is she aware how this delay looks? On last year’s figures, black people were 18 times more likely to be stopped and searched than white people when the police have the power to stop and search without reasonable suspicion. The Police, Crime, Sentencing and Courts Bill already contains new provisions to allow even more stop and search without suspicion and, on Monday, the Government laid 18 pages of new amendments to the Bill for debate next week, further extending the ability of the police to stop and search people without any reason to think the person they are searching has anything on them. What equalities impact assessment has been made of these new powers and what was the result?
Baroness Williams of Trafford (Con)
An equalities impact assessment has been done on the Bill, as is done on every Bill, as the noble Lord knows. On how this looks, I have explained the process for producing the statistics and I hope that is satisfactory for the noble Lord. I was disappointed that this Question was not being asked tomorrow, so that we could debate it more fully, with the statistics before us.
Baroness Blower (Lab)
I wonder if I can press the Minister to comment on the figure just given by the noble Lord, Lord Paddick, which is in the public domain—that black people are 18 times more likely to be stopped and searched than white people. Can she comment on this in the light of the case reported in the Guardian of a 14 year-old black schoolboy, who claims to have been stopped and searched 30 times in the last two years, including on one occasion when he left his home to put out rubbish? Does the Minister agree that stop and search is often a crude tactic, that there is a well-founded perception that it is based on racial stereotyping and that once a young person—a child, in fact—has become a target, they tend to remain one?
Baroness Williams of Trafford (Con)
The noble Lord, Lord Paddick, has often quoted that statistic and he is absolutely not wrong.
Baroness Williams of Trafford (Con)
I am sorry, my Lords; he is right. It has been a very long week and it is still Wednesday.
The noble Lord is absolutely right on that, but of course a young black man is 24 times more likely to be a victim of homicide than a young white person, so the two statistics need to be looked at together. It is true that no one should be stopped and searched based on their ethnicity. The police engage with communities daily and the Government have to abide by codes of practice, and now use body-worn video, to ensure that what they are doing is reasonable and proportionate, in the pursuit of tackling crime.
Baroness Jones of Moulsecoomb (GP)
In tabling at this stage a new set of amendments on the issue of stop and search without suspicion, the Government have stampeded through all our protocols and processes. I have never heard of that happening and I think the noble Baroness probably has not either. Can she explain why this is okay, when we have already passed Second Reading and have nearly passed Committee? Why do the Government think this is all right? Could the Minister please answer the question from the noble Lord, Lord Paddick, which was specifically about an impact assessment on the new stop and search amendments?
Baroness Williams of Trafford (Con)
As I say, the impact assessment is done on the Bill and it will include the amendments that we propose. Amendments to legislation are often put forward relatively late in the day. In Committee and then on Report, there will be plenty of time to scrutinise them. They are in response to violent crime increasing and the Government’s real desire to tackle it.
Lord Coaker (Lab)
The really important point is how we maintain public confidence in the use of stop and search, which is one of the most controversial of police powers. The Government intend to extend that power to a wider range of situations, including when without reasonable suspicion. The publication of the statistics tomorrow will allow us analysis. How are the Minister and the Government going to use those statistics to inform the public and thereby keep public confidence?
Baroness Williams of Trafford (Con)
The noble Lord goes to the nub of the problem. Certainly, in light of the case of Sarah Everard, trust in the police has to be regained and rebuilt, because we must have trust in those people, the vast majority of whom are there to keep us safe. The police must be held to the highest standards, of course, which is also crucial to public trust in them.
Baroness Lawrence of Clarendon (Lab)
My Lords, the question around stop and search has been going on for decades now, and I do not think we have improved how the police conduct themselves around the black community. The scrutiny that has been taking place seems not to be working. We have listened to noble Lords bring the same subject up time and again, as have I. The Minister talks about the report that is going to be out tomorrow. Why has it taken so long for the report to come out since April? We have not been given much time for scrutiny. We have had so many reports of police misbehaviour within public office—she just mentioned Sarah Everard. When are we going to get to the point when we stop talking about stop and search and the effect it has on the black community?
Baroness Williams of Trafford (Con)
I pay tribute to the noble Baroness and all the work she has done. Despite the fact that we might have different views on how to go about it, I think we both seek the same ends: trust from communities in the police; and making sure that more black lives are saved through reducing the amount of knife crime and making our streets safer for everyone, including young black men. That is at the heart of the Bill, and the collection of some of the data will help us towards this end—to see whether our policies are working and whether the pilots, when they are rolled out, are more effective than we have been at reducing the number of knife crimes.
Armed Forces Bill
(2 years, 5 months ago)
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Baroness Goldie
That the amendments for the Report stage be marshalled and considered in the following order:
Clauses 1 and 2, Schedule 1, Clauses 3 to 9, Schedule 2, Clause 10, Schedule 3, Clause 11, Schedule 4, Clause 12, Schedule 5, Clauses 13 to 16, Schedule 6, Clauses 17 to 27, Title.
Terrorist Incident at Liverpool Women’s Hospital
(2 years, 5 months ago)
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Lord Rosser (Lab)
I express our gratitude to the emergency services, which had to deal and are still dealing with this awful incident and its aftermath, whether that incident be terrorism-related or not. I also pay tribute to the bravery and actions of David Perry, the driver of the taxi, and express the hope that his recovery proves to be full and complete. We have to be ever vigilant and proactive in combating and thwarting abhorrent acts of this kind.
I have just two questions. First, the Government have had a report on dealing with so-called lone actors. What are the Government doing with that report? We have called for a judge-led review. Secondly, in the Commons yesterday, Conor McGinn MP referred to a report from the Intelligence and Security Committee
“that included recommendations on the use of and construction of such devices—namely, regulation around the ingredients or chemicals used to make them.”
He asked:
“Why have none of those recommendations been implemented after four years?”—[Official Report, Commons, 16/11/21; col. 459.]
There was no answer from the Government yesterday. Twenty-four hours later, can the Government now give an answer to that question?
The Minister of State, Home Office (Baroness Williams of Trafford) (Con)
I thank the noble Lord for his questions, and I join him in paying tribute to our emergency services, who acted so quickly to try to preserve life at the scene of the attack, and to the taxi driver, who really was a hero in what must have been an extremely frightening situation. We wish him and his family well. With regard to the first question about lone actors, clearly we get information from all sorts of sources. The noble Lord is absolutely right to point out that the nature of terrorism is changing, and we have seen a number of lone-actor attacks in the past few years. I cannot comment on this attack further because clearly it is a live and very new investigation. The facts of the case will come out as the investigation continues, but I know that the police made a statement today. I will get back to him on the report he referred to if I can. I am not sure what more I can say about it today.
Lord Paddick (LD)
My Lords, I understand the caution that the noble Baroness has expressed about the incident itself; it did not seem to stop the Home Secretary reportedly saying that
“The case in Liverpool was a complete reflection of how dysfunctional, how broken, the system has been in the past”.
Despite that, I also express my thanks to the police, the security services and the taxi driver. Does the Minister agree that so-called lone-wolf or lone-actor attacks are some of the most difficult to prevent, whatever motivates them; and that, while the police and the security services do an outstanding job, they cannot be successful without the help and support of people from every community? What are the Government doing to build trust and confidence with communities where this is lacking?
Baroness Williams of Trafford (Con)
I totally agree with the noble Lord that these things are hard to predict and hard to deal with when they happen. I have seen a couple of comments, particularly from BAME communities in Liverpool, saying that they have faced hate incidences in the last couple of days, and we have seen before that, when an attack happens, quite often it is women who bear the brunt of the hatred and the name-calling. When I was Minister for Counterextremism, I remember going to many different communities, such as Muslim communities and Polish communities after Brexit, trying to provide reassurance. The police have been fantastic on the back of some of the attacks in reassuring local communities.
Lord Carlile of Berriew (CB)
My Lords, I too commend the work of the first responders and others who did so much at the scene. It now transpires that the perpetrator was finally refused asylum in 2017, and that was the last time his case appeared before a court. Why did the Home Office not remove him from the United Kingdom between 2017 and 2021? Is it not outrageous that the Home Secretary is trying to blame anyone but the Home Office for him being still in this country?
Baroness Williams of Trafford (Con)
I do not disagree with the noble Lord that the chap should not be in the country, but in many instances people will frustrate removal processes by putting forward new claims. When we consider the borders Bill, one thing that we have to ensure is that, when people are refused asylum, they are sent back to the country from which they came.
Baroness Hoey (Non-Afl)
My Lords, further to the question from the noble Lord, Lord Carlile, does the Minister think that perhaps the public deserve to know how many other failed asylum seekers are still in this country and waiting to be removed? This is very worrying for the public and for all of us here, I hope.
Baroness Williams of Trafford (Con)
I agree with the noble Baroness that this is a concern. That is the reason why the Home Secretary is trying to construct a new legislative framework to make sure that asylum claims are granted or, if they are not, that people are sent back as quickly as possible.
Lord Cormack (Con)
My Lords, we all support the enormous bravery of the taxi driver and salute him. There is apparently some crowd funding going on of dubious authenticity. I do not ask my noble friend to comment on that, but should it not be automatic that anybody who foils a terrorist outrage of this sort is rewarded by the Government and that any material loss suffered, such as the loss of the man’s taxicab, is dealt with on an official basis?
Baroness Williams of Trafford (Con)
I do not know. I agree with the principle of what my noble friend says—it is pure humanity—but I do not know the details of what is going on in order to help the taxi driver to rebuild his life. I have seen things in the press this morning, but I could not comment on them because I do not know if they are correct. But that man is a hero.
Lord Berkeley (Lab)
My noble friend Lord Rosser asked about this report about the constituent parts of a homemade bomb. From my experience in the construction industry long ago, some of those bits and pieces are easily obtainable in the construction and agricultural industries. Could the Minister make sure that a copy of this report is put in the Library and sent to noble Lords who have spoken? It seems very important that there should be some control over these materials.
Baroness Williams of Trafford (Con)
The noble Lord is right. Certain parts of what could be used to make a bomb are now controlled under Home Office licence, as he will know. If I can, I will of course put a copy of the report in the Library.
Lord Hamilton of Epsom (Con)
My noble friend has said that asylum seekers look for additional reasons as to why they should not be removed from this country. Do those reasons include conversion to Christianity?
Baroness Williams of Trafford (Con)
I am afraid to say to my noble friend that they do. Noble Lords will remember the Reading attack, which was one such case. In fact, the Reverend Mohammad Eghtedarian raised concerns about asylum seekers cynically posing as Christians way back in 2016, as did the Right Reverend Peter Wilcox, admitting that people had mixed motives for conversion to Christianity. People wanting to frustrate the system will use a range of different reasons to do so. What is sad about this is that it stops some of the more genuine asylum claimants coming to this country.
Baroness Fox of Buckley (Non-Afl)
My Lords, a number of noble Lords have mentioned trust and confidence and reassuring the community. On reassuring the whole community of the United Kingdom, can there be a little less concern about specific communities and more open debate and discussion about the threat of Islamist extremism? People are nervous that they will be accused of being unfair to Muslim communities when actually many Muslims are worried about Islamist extremism. We need more open debate, because there is a feeling that we are not able to have that discussion. After the terrible murder of David Amess and all the things that we have faced, we need that to be openly discussed in this country, among all of us.
Baroness Williams of Trafford (Con)
The noble Baroness is right. I have said so many times at this Dispatch Box that the vast majority of people who are Muslim and who live in this country are law-abiding, share our values and contribute to society. We have just celebrated their role in helping us in the First World War. We talked about free speech yesterday or the day before; I totally agree that, in these discussions, there should be respect for free speech.
The Deputy Speaker (Lord Duncan of Springbank) (Con)
My Lords, the time allowed for the Urgent Question has now elapsed. We will take a moment to let people who do not want to be here for the next piece of business escape from the Chamber—[Interruption.]—accompanied by music. If only all the times I stood up I was accompanied by a jaunty tune, but unfortunately that cannot be so.
Baroness Blower (Lab)
My Lords, I offer my profound apologies for that unwarranted intervention in the work of the House.
The Deputy Speaker (Lord Duncan of Springbank) (Con)
That is very kind of you to say so.
Police, Crime, Sentencing and Courts Bill
Wednesday 17th November 2021
(2 years, 5 months ago)
Lords ChamberRead Full debate Police, Crime, Sentencing and Courts Act 2022 View all Police, Crime, Sentencing and Courts Act 2022 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 40-IX Ninth marshalled list for Committee - (15 Nov 2021)
Lord Moylan (Con)
My Lords, I will speak to the amendments to which I put my name in this group, which are in the names also of the noble Baroness, Lady Meacher, and the noble Lord, Lord Paddick, but before I do so I will make a few remarks about two amendments that I have not put my name to but now see clearly that I should have done, namely Amendments 226A and 226B in the name of the noble Baroness, Lady Armstrong of Hill Top. These amendments address a part of the Bill that makes one potentially subject to a serious violence reduction order for what one “ought to have known”. The noble Baroness dealt with it from the point of view of its equalities implication when she spoke to her amendments. I will deal with it from the point of view of its absurdity.
What ought one to know? Your Lordships’ House is full of astonishingly complicated rules about which carpet you can and cannot stand on, what date you have to put amendments down by and things like that. As a relatively recent Peer, I have spent most of the last year wandering around the place wondering what I ought to know. Is that a basis for culpability of some sort? How is it to be established? I am not a lawyer at all and I have no experience of the criminal justice system, but it is surely hard enough to establish in court as a matter of evidential fact what a particular person knew or did not know, let alone what they ought to have known. This is all to be worked out by a judge, without the benefit of the wisdom of a jury, with no particular guidance and no idea what “ought to have known” means. The whole thing is completely absurd. The idea that one should have one’s liberties restricted simply because of what one “ought to have known” should be taken out of the Bill. These amendments would effect that and I lend my support to them.
On the amendments to which I have put my name, noble Lords have already made the case extremely well. We need to start with a clear understanding that a serious violence reduction order is a criminal sanction. It is nothing less. We cannot make it the same as civil penalties. This all started back in the 1990s when parking offences were decriminalised. In my service as a local councillor, I benefited hugely from that. It was a tremendous idea and worked extremely well, but we cannot then carry on applying the same principle. An SVRO is not a parking ticket; it is a potentially serious restriction on your liberties that travels with you and, if you are a young person, stigmatises you, if are trying to make your way in university or wherever you might move to around the country, by making you go and register and so on. This is not a parking ticket; it is very much more serious.
Lord Paddick (LD)
My Lords, as the noble Lord, Lord Moylan, has said, before the break we moved to the highly controversial area of serious violence reduction orders, and I moved Amendment 224 on behalf of the noble Baroness, Lady Meacher. I then gave way to the noble Baroness, Lady Armstrong of Hill Top, who has to chair a Select Committee at this time. Then I sat down. That is why I am now standing.
We have tried to make this group more manageable by restricting it to the considerations for granting SVROs by the courts, and related matters, and moving what happens once an order has been granted to another group. It is still, however, an enormous and complex set of amendments. So, to misquote Captain Lawrence Oates, I may be some time.
This section of the Bill gives the police power to stop and search people without any reasonable suspicion that they may be in possession of anything unlawful. Its origins are in the Conservative party manifesto, which says:
“Police will be empowered to target known knife carriers with a new court order, making it easier for officers to stop and search those known in the past to have carried weapons.”
That statement seems to regard all knives as weapons. On the face of it, chefs and Sikhs, to take but two examples of innocent knife carriers, could be targeted with the new court order. Surely what the public, reading this part of the manifesto, would have been hoping for, is that the police would target criminals who have carried knives intending to use them illegally as weapons, or who have used knives in the commission of an offence, not just anyone “known to be a knife carrier”.
Furthermore, would the public have expected that, if you were with someone when you were caught committing an offence, and the other person—your accomplice—had a knife concealed on them, you too would be regarded as a “known knife carrier”, even though you were not carrying a knife? There may be a convention that we should not stand in the way of provisions set out in a governing party’s manifesto, but when they are as poorly drafted as the few lines the Government are relying on to include serious violence reduction orders in the Bill, perhaps we should make an exception.
These measures are controversial for many reasons, but two fundamental principles are breached here. The first is the use of previous convictions, as my noble friend Lord Marks of Henley-on-Thames said before the break. When an accused person is before a court that is to decide their guilt or innocence, in almost every case the accused’s previous criminal record is not considered relevant to whether, on the occasion the court is considering, they committed the offence. Convicted criminals have to be given the chance to turn their lives around and to move on.
The provisions in this part of the Bill allow the police to stop and search people because, at some time in the past, on the balance of probabilities, even based on hearsay, they, or someone they were with, may have had a knife on them. Unlike convictions that become spent after a period of time—the Government are making some welcome changes in this regard in another part of the Bill and unwelcome changes when it comes to cautions—these serious violence reduction orders can be renewed indefinitely. The individual could have a stop and search target on their back for the rest of their life.
The second fundamental principle, that could only be breached in very limited circumstances in a limited geographic area for a limited period of time and authorised by a senior police officer—although we think Section 60 should be abolished—is that the police can stop and search someone only if they reasonably believe that the person has something on them at the time of the stop and search that they should not have, whether it is drugs—usually it is, as 63% of stop and searches are for drugs—or something else that it is unlawful for them to have in their possession.
The trouble is that the overwhelming majority of stop and searches result in no further action being taken, but you are nine times more likely to be stopped and searched if you are black than if you are white, even when it is supposedly based on reasonable suspicion. As noble Lords heard in answer to an Oral Question earlier, it gets even worse. Only one in 100 Section 60 “no suspicion required” stop and searches results in a weapon being found, while disproportionality increases to 18 times more likely to be stopped and searched if you are black compared with if you are white. It might also be useful for the Committee to note that, on stop and search based on suspicion where you are nine times more likely to be stopped and searched if you are black, you are no more likely to have anything illegal on you than a white person.
The evidence is irrefutable; stop and search, where no reasonable suspicion that the person you are searching has anything illegal on them is required, is ineffective and damaging to police-community relations. Yet here we are, with the Government are proposing more suspicionless stop and search. It is not just about damaging police-community relations. For those repeatedly stopped and searched by the police, there is a personal impact. It tends to increase offending, is associated with anxiety, the loss of sleep and the ability to study, which further inhibits an individual’s ability to turn their life around and be a productive member of society.
Turning to Amendments 224, 227 and 237, as my noble friend Lord Marks of Henley-on-Thames has said, and as the noble Lord, Lord Moylan, has just said, for any order that has serious consequences—in terms of a breach of the order resulting in a criminal conviction and potentially a prison sentence—the court should be satisfied beyond reasonable doubt that the conditions necessary for the order to be imposed are satisfied, not, as the Bill proposes, on the balance of probabilities. We have consistently argued this for other such orders, and I do not intend to rehearse those arguments today.
It is obvious to any reasonable person that, before such a serious order can be imposed, the court must be absolutely convinced that the conditions for making the order are satisfied, whether, in the case of Amendment 224, the offender had a knife, or, as in Amendment 227, it is necessary to make the order to protect the public or particular members of the public or to prevent an offence being committed involving a knife, or, in the case of Amendment 237, that the court considers beyond reasonable doubt that it is necessary to renew or lengthen the duration of an SVRO. Amendment 228, in my name, ensures that an SVRO can be imposed only if the court is satisfied that it is a proportionate way to ensure that people are protected or offences involving knives are prevented.
As we can see, these are draconian orders; they are likely to be ineffective based on evidence of other suspicionless stop and searches and to disproportionately impact on ethnic minorities. This amendment is designed to ensure that courts take these unintended negative consequences into account before imposing them.
Carrying a knife is not a criminal offence. The criminal offence is committed only when the knife is carried without reasonable excuse or lawful authority. Amendment 225 would disallow a serious violence reduction order from being applied if a person simply had a knife with them when the offence was committed.
I will illustrate with a fictitious example. Two louts are walking down a road. One of them smashes the window of a car that has been parked and left unattended. They are both arrested and charged with criminal damage. The active participant is found to have had a knife with him because he is an electrician who was on his way home from work, and he uses the knife in the course of his work. He could still have an SVRO made against him, under the Bill as drafted, even though he was lawfully in possession of the knife. Amendment 225 is designed to restrict SVROs to cases where the knife was used as a weapon in the course of the offence.
As the noble Baroness, Lady Armstrong of Hill Top, and my noble friend Lord Marks of Henley-on-Thames have said, the legal concept of “joint enterprise” is already controversial—for example, where members of a gang who are present when one of the gang stabs another can all be guilty of murder. This is taken to another level by these provisions. The court should not be able to give the accomplice an SVRO—to go back to the manifesto, someone who is not a known knife carrier. That is the intention of Amendment 226, tabled by the noble Lord, Lord Ponsonby of Shulbrede, to which I have added my name.
Not only can an SVRO be given to the electrician’s mate even if the electrician did not use the knife to smash the car window, it can be given if his mate
“knew or ought to have known”
that he had a knife. Well, he knew he was an electrician, so I suppose he should have known he might have had a knife. No. We support Amendments 226A and 226B tabled by the noble Baroness, Baroness Armstrong of Hill Top, seeking to remove the condition that the offender
“ought to have known”
that his accomplice had a knife. The noble Baroness clearly explained the unintended consequences for women and girls who are often coerced into offending.
SVROs can be made not only on the balance of probabilities but on the flimsiest of evidence. For example, even if the evidence that the person had a knife with them when the offence was committed would not have been admissible in the trial for the offence, it could be used in deciding whether to impose an SVRO.
Let us go back to the example of the electrician and his mate who have smashed a car window. Imagine that, for whatever reason—perhaps it was his day off—the electrician did not actually have a knife with him when he smashed the car window, but then his mate says to the police, “He’s an electrician, and he usually has a knife”. This is hearsay evidence and it is not relevant evidence, in that it does not prove or disprove the offence of the smashing of the car window. Therefore, it would be inadmissible during the trial. But, as drafted, it is evidence that could be considered by the court in deciding whether to impose an SVRO. It may not even be true. Amendments 229, 230 and 231 attempt to strengthen the evidentiary requirements prior to an SVRO being made by excluding evidence that would have been inadmissible in the trial for the offence leading to the consideration of imposing an SVRO.
Amendment 240 proposes a far more rigorous examination of the piloting of SVROs—for example, whether they reduce knife carrying and serious violence; the impact on disproportionality; what types of offences led to the making of the order; and requiring the Secretary of State to obtain, record and publish relevant data before SVROs are rolled out.
The nonsense of this monstrous Bill, where the Government have tried to force so much controversial legislation into one Bill, and then tried to force as many provisions of the Bill as possible into each group of amendments, has resulted in my longest ever speech on the Floor of this House in my eight years here. Do not blame me—I am looking at the Minister.
If I am to end my speech here, all I can ask is for noble Lords to read my remarks on this group of amendments in their entirety in the official record and to take them collectively as the reasons why this clause, and serious violence reduction orders in their totality, should not stand part of the Bill.
Lord Coaker (Lab)
My Lords, I was listening with great interest to the noble Lord, Lord Paddick. It was a very good contribution and he raised a huge number of real concerns shared by many noble Lords across the Chamber. The question for the Government is whether they will actually listen to some of the points being made and change the legislation. In the light of some of the comments made by the noble Lord and by many others across the Chamber, I hope that they will. Irrespective of one’s view of this, there is a need for the orders to change; even if one disagrees with them as a whole, they need to be improved, and that is the point of Committee.
To be fair to the Government, I understand what they are trying to do. Noble Lords will know that I am not a lawyer, but I go to the facts to find things out, and I usually find it helpful to quote the Government’s own facts because then they do not accuse me of making them up. So I will quote from the Serious Violence Reduction Orders: Draft Statutory Guidance, of October 2021. Here we see the scale of the problem. According to the Government, these orders are needed because
“Recorded knife crime has risen over a period of several years.”
These are the Government’s own figures:
“For example, offences involving knives or sharp instruments increased by 84 percent between the year to June 2014 and the year to June 2020.”
Whatever the reasons or the rights and wrongs, that is a huge increase.
The public, and all of us, would expect the Government to do something about that, but the questions being posed here are these. First, are serious violence reduction orders the way to do it? Secondly, even if they are, are the Government going about it in a sensible way? I would say that the answer to both is probably no.
There are a huge number of concerns about these serious violence reduction orders, not least of which is, if you have a serious problem with knife crime, what has been shown to be successful over the decades—the noble Lord, Lord Paddick, will know this from his policing days, and others have had experience of this, including the Minister in her local authority—is targeting police activity alongside the community, with all the various agencies diverting people, and young people in particular, away from it. That has been proven time and again. If the Minister goes back to the Home Office, she will find research after research to say that that is the way to deal with it: increase policing, work with local authorities and other local partners, and work with the community to take action.
I tell you what I think has happened: the Government have said, “My goodness, we have a real problem here, what are we going to do?”, and reached for an order which gives the impression of doing something. Of course, everyone wants the Government to do something—all of us want knife crime reduced—but is this the most effective and best way of doing it? Is this proportionate? Will it work? I have very serious concerns about the process but also about whether these orders will actually do what the Government, and all of us, want them to do, which is to reduce knife crime and stop people of whatever age offending. The Minister needs to explain why these will work. Why will they do what the Government intend? Will we read in a year or two that that 84% figure has been reduced?
Nobody in this House believes that stop and search is not a necessary action for the police to take at certain times, but it is the most controversial aspect of policing. I am sure that many people will have experienced or witnessed—it may not have been themselves personally—stop and search. It is a real infringement of people’s liberty, but communities accept it for the common good. That does not mean that they want it to happen carte blanche. The use of Section 60 is sometimes allowed, and communities will agree with it, but Section 60s do not last for two years. They last for a very short period, where the community has agreed that such is the crisis facing their particular area that, when it comes to whatever age of people, they will allow the police to have what they regard as a draconian power in order to further the public good.
The Government have driven a coach and horses through that with this serious violence reduction order. It is not just me who thinks this: the former Home Secretary and Prime Minister, Theresa May, talked in her contribution to this debate about the unintended consequences of this legislation and what she would have wanted. That is why my noble friend Lord Ponsonby has indicated that he will oppose Clause 140 standing part of the Bill. A general debate needs to take place and the Government need to justify to this House and to the public why this clause will work and why it is necessary.
We have heard lots of contributions on the various amendments, as the noble Lord, Lord Paddick, said, but nobody could have failed to have been moved by what my noble friend Lady Armstrong said. She was supported by the noble Lord, Lord Marks, in another good contribution, and by the noble Baroness, Lady Meacher. As they pointed out, everybody knows that what my noble friend Lady Armstrong said is true: if this Bill goes through unamended, there will be young people—and people of any age—who will, by implication, be in trouble because they “ought to have known”. What sort of standard is that, as the noble Lord, Lord Moylan, asked? They ought to have known? I was a schoolteacher: you could not even give someone detention sometimes on the basis of “ought to have known”. This is serious: it is about taking away someone’s liberty. It is about stopping them in the street; it is about doing all of that. I do not know about your Lordships, but I have been in the company of lots of people in different sorts of situations and I did not always know what they were going to do, especially not criminal activity. I am sure that we all have said: “They did what?” That could even happen with friends, yet the Government are basing serious violence reduction orders on the basis of “ought to have known”. My noble friend Lady Armstrong was quite right.
Women are coerced into criminal activity. We all accept that—it is beyond debate—yet the Government are going to criminalise them. It beggars belief. I do not believe that either of the Ministers facing me believe in this. I think that they accept that women are coerced into activity that they do not want to get involved in, but they are going to pass legislation that will allow them to be criminalised. It just does not add up; it does not make sense. The Government have the power to change this—that is what is so frustrating. This is not yet the law. That is why we are debating it and why people are raising these issues. They are saying that it will not work, that it is unfair, that it is unjustified or that it is not in accordance with the principles of the legal system of our country, of which we are all so proud. There are doubts about its effectiveness. I hope that noble Lords will bear with me on this stand part debate, as Clause 140 goes to the nub of it. There are all sorts of amendments that we could put, but on this particular order—it will be for noble Lords to decide—that clause goes to the nub of what we are talking about.
My noble friend Lady Lawrence, who is not in her place, is a remarkable woman. Continually, year after year, despite the horror of her own circumstances, she points out in a calm, respectful, dignified way that the Government have to understand the consequences of some of the things that they are imposing on black and ethnic minority communities. She is not saying it just because she is a Labour Peer and wants to have a go at a Conservative Government; she is saying, “From my experience, from my knowledge, from my understanding, this will be the consequence of what the Government are going to do.”
We know that black and ethnic minority people are disproportionately affected by these changes. Go to these communities and talk to them, as I did when I was a Home Office Minister, and as I am sure Ministers will do, and if you get their agreement, they will support you. They do not want their young people stabbed; they do not want crime all over; they want their young people and their adults to be safe—of course they do—but they want it done with them, not to them. I have statistic after statistic around the disproportionality that exists, as well as what the College of Policing says about it. The House of Commons Library states:
“Available statistical analysis does not show a consistent link between the increased use of stop and search and levels of violence.”
If that is wrong, where is the evidence to show that it is wrong? I would say that, while stop and search may work in a blanket way, we need to look specifically at where it is targeted. I think that stop and search does make a difference, but it is where it is targeted: it should not be a blanket “Here you go; do it when you want”, which is what perverts the figures. As I say, we have real concerns, epitomised, and I make no apology for repeating this, by what the noble Baroness, Lady Armstrong, said.
I have a couple of things to say about the amendments in the name of my noble friend Lord Ponsonby. Amendment 226 would remove the provisions that allow an SVRO to be applied to a person who has not actually handled a knife, as we were saying, or any kind of weapon, but who was in the company of someone else who had used a knife and, as the Bill says, either
“knew or ought to have known”
that their companion was armed. I just think that that will have to change. These orders allow a person to be stopped and searched without grounds; they can be stopped and searched without reasonable suspicion for up to two years. I think that there is an amendment, although I cannot remember if it is in this group, that questions whether that can be continually renewed and whether two years is the limit. From my reading of the Bill, it seems that it can go on and on, so it is quite a draconian proposal.
On Amendment 239—the noble Lord, Lord Paddick, has signed both the previous amendment and this one—the Delegated Powers and Regulatory Reform Committee says that too many of these powers are going to be applied by the negative procedure. It says to the Government, even if it is right to take away some of the liberty of the citizen in our country, on the street, by giving the police additional powers, surely that should be debated in Parliament. It should not just be for Ministers to make it up and lay it and that is it. Are we really saying that freedom of the individual in this country is dependent on a Minister in an office determining what the regulation should be on something as serious as this? Do we not agree with the committee, particularly regarding stop and search as well as other matters in the Bill, including these violent crime reduction orders, that at least the affirmative procedure should be used? We cannot amend the instruments, but we can at least debate them and I think that people would reasonably expect that.
Finally, if the Government are going to go ahead with this, as I expect they will, Amendment 240, in the name of the noble Baroness, Baroness Meacher, is essential: the pilots that the Government are running must be of a real standard, a real quality, and must be strengthened. If the evidence from those pilots is not what the Government want it to be—if it shows that they do not work—can we be assured that they will listen to what the pilots are telling them?
I could go on, and I am sorry that I have gone on a little while, but I think that stop and search, particularly without reasonable suspicion, is one of the most important powers that the police have to tackle serious and violent crime, but it is also one of the most controversial and, as such, should be handled with real care. I suggest that these amendments say to the Government that even if they are right to introduce these orders, they have not really, through the Bill, shown us that care and demonstrated it to the public. The Government need to think again.
The Minister of State, Home Office (Baroness Williams of Trafford) (Con)
My Lords, I thank the noble Lords, Lord Paddick and Lord Coaker, for speaking to these amendments, as well as the noble Baroness, Lady Armstrong, who is back in her seat—the timing was pretty good, because we had an hour’s break; in fact, it was an hour and a half by the time we had finished Questions.
Before I turn to the specifics of the amendments, it might be helpful to the Committee if I first outline why we are introducing these new orders and why we think they will make a positive contribution to tackling knife crime, which has risen over the last seven years, as the noble Lord, Lord Coaker, pointed out. I agree with him on the multi-agency approach. He brought up our local government days. Absolutely the most effective initiatives, which have grown over the last few years, are those which take that public health approach, with all agencies working together. On testing, the pilots will be a very good way of assessing whether what we have proposed is effective when put into practice. There are four pilot areas, which I shall go through shortly. I say to the noble Lord that it will be independently evaluated.
The Committee would not disagree that every time someone carries a knife, they risk ruining their life and the lives of others. Knife crime is blighting our communities and the Government are determined to tackle the scourge. I again totally agree with the noble Lord, Lord Coaker—again, this probably goes back to our local government days—that engagement with communities is vital, because they not only support their young people not being knifed to death but they will support the police in what they are trying to do. We have just talked in the Urgent Question repeat about trust from communities in what the police are doing.
We have committed to putting an extra 20,000 police officers on our streets. We have also committed £176.5 million over the last two years through a serious violence fund to address the drivers of serious violence at the local level and significantly bolster the police response. This includes £70 million to support violence reduction units in 18 areas across the country most affected by serious violence. We have also committed a further £130.5 million to tackle serious violence and homicide in the current financial year.
Stop and search has taken 11,000 knives off the streets and resulted in 74,000 arrests in 2019-20. However, we all know that we have more to do. As the noble Lord, Lord Coaker, said—I apologise that I keep quoting him—we all want to know what works and what will drive out the scourge of knife crime. Too many criminals who carry knives or other offensive weapons go on to offend again—that is indisputable. We need to send a clear message that if people persist in carrying knives, they can expect to be caught and face a prison sentence.
As I have said, stop and search is a vital tool to crack down on violent crime. As I indicated in an earlier debate, we have already made it easier for forces to use existing powers. Our message is simple: if offenders are vulnerable and want to move away from crime, we will support them, but if they continue to carry knives and weapons over and over again, serious violence reduction orders, or SVROs, help to end that reoffending cycle. They will give the police powers to take a more proactive approach and make it easier to target those already convicted of offences involving knives or offensive weapons, giving them the automatic right to search those offenders and help tackle prolific, high-risk offenders.
SVROs are intended to be used as part of a wider approach to support offenders. We expect that they will provide a credible reason to resist pressure to carry weapons, thus acting as a deterrent and helping to protect vulnerable first-time offenders from being drawn into further crime and exploitation by criminal gangs.
We understand the concerns around disproportionality and the impact of stop and search on our BME communities but, as I said in an earlier response, let us not forget that young black people are 24 times more likely to be victims of homicide than young white people. Young black people are dying, their families are suffering and their communities are being disproportionately impacted. We must do better. We must give the police tools that will enable them to take a more targeted approach, focusing their efforts and resources on those they know carry knives.
As I have said, these orders will be piloted before being rolled out across England and Wales. Clause 141 sets out the detail of this. The pilot will help us build an understanding of the impact and effectiveness of the new orders and, as required by Clause 141, we will lay a report before Parliament on the operation and outcome of the pilot. I hope that this gives the noble Lord, Lord Coaker, some comfort.
I now turn to the specifics of the amendments. Amendments 224, 227 and 237 would raise the threshold for the standard of proof required to impose, vary or renew an SVRO from the civil standard, which is the balance of probabilities, to the criminal standard, which is beyond reasonable doubt. Before I go any further, I thank my noble friend Lord Moylan; I forgot to acknowledge that he made a very good speech earlier.
New Section 342A(3) of the Sentencing Code provides that an SVRO can be made if the court is satisfied, on the balance of probabilities, that a bladed article or offensive weapon was used by the offender in the commission of the offence, or that the offender had a bladed article or offensive weapon with them when the offence was committed. An order can also be given if the court is satisfied, on the balance of probabilities, that a bladed article or offensive weapon was used by another person in the commission of the offence—the commission of the offence is the crucial point here—or that another person had a bladed article or offensive weapon with them when the offence was committed and the offender knew, or ought to have known, that that would be the case.
This means that, when considering any applications for an SVRO, the court should apply the civil standard of proof when determining whether the individual in respect of whom the application is made has committed an offence involving a bladed article or offensive weapon. This civil standard is not new; it was accepted in your Lordships’ House in the context of domestic abuse protection orders earlier this year, or at the end of last year.
I am aware that there are concerns about this approach. However, the Bill provides that the court may hear evidence from both the offender and the prosecution when considering whether to make an SVRO. It is anticipated that, in most cases, it will be clear beyond reasonable doubt whether the offender used or had with them a knife or offensive weapon in the offence, and the offender may have been convicted of a knife or offensive weapons offence.
However, there may be cases where the fact that an offender used or had with them a knife or offensive weapon cannot be proved beyond reasonable doubt. In these cases, we believe that the civil standard, namely the balance of probabilities, is appropriate to enable the court to consider whether an SVRO is necessary in respect of an individual, given the aims of the order to protect communities and deter offenders from future offending. The criminal standard of proof will apply in any criminal prosecution for breaching an SVRO. As I said, this approach is in line with other civil orders, such as domestic abuse prevention orders, which we debated at the beginning of the year.
Amendment 225 would restrict the circumstances in which an SVRO may be made. Currently, proposed new Section 342A(3) provides that an SVRO can be made if a bladed article or offensive weapon was used by the offender in the commission of the offence or that the offender had a bladed article or offensive weapon with them when the offence was committed. This allows for circumstances where a bladed article or offensive weapon was not used in the offence, but the offender had a bladed article or knife with them when the offence was committed.
I remind the Committee that for an SVRO to be made a person must be convicted of an offence involving a knife or offensive weapon. So the Sikh or chef, in the proposition of the noble Lord, Lord Paddick, would not generally be convicted of an offensive weapon attack—and that applies to the electrician and his mate. I am sorry; I am trying to read my own writing here.
Baroness Chakrabarti (Lab)
I have a quick question, because I want to be clear about this point in relation to something the noble Lord, Lord Paddick, said earlier. If a Sikh, who is carrying just their religious knife, is in a fight and is convicted of common assault, is the SVRO now available in that context?
Baroness Williams of Trafford (Con)
It is always dangerous to talk about specific cases but, if the knife has not been used in the commission of the offence—
Baroness Williams of Trafford (Con)
If the Sikh was going about his business with his knife in his pocket, he would have reasonable excuse. If he then got into a fight and the knife was not used in the commission of the common assault, the knife would be irrelevant to the case. But I must absolutely caveat my comments: the court would decide the facts of the case.
Lord Paddick (LD)
Could I further clarify what the Minister has just said? If the Sikh becomes involved in a fight and does not go for the knife that they are carrying during that offence, the Sikh can still be made subject to an SVRO, because they committed an offence and had a knife with them at the time the offence was committed, even though the weapon was not used.
Baroness Williams of Trafford (Con)
My Lords, I have just fallen into a trap that I do not like to fall into, which is to take on specific cases. The court would have to determine the facts of the case to decide whether the knife was relevant and, therefore, whether an SVRO could be made.
Lord Paddick (LD)
This is Committee and it is important to get this clear. My clear understanding of the legislation is that it does not matter whether the knife was used in the commission of the offence; it is simply the fact that the person had a knife with them when they committed the offence which means that not only can that person be made subject to an SVRO but any person convicted with them who did not have a knife can also be made the subject of an SVRO by the court. So, without using specific examples, can the Minister please clarify that I am correct?
Baroness Williams of Trafford (Con)
What I can clarify is that I will not take theoretical cases again. But the court would need to consider whether in the circumstances it is proportionate to make an order. That does not go into the specifics of any given case.
Lord Coaker (Lab)
The Minister might want to take some advice on this, but I think the relevant piece of legislation in Clause 140 is proposed new Section 342A(3)(b), which says that
“the offender had a bladed article or offensive weapon with them when the offence was committed.”
They do not have to use it; it is just the fact that they are carrying it and have it on them.
Baroness Williams of Trafford (Con)
I think I backtracked quite a bit to say that the courts would then make the judgment call on whether the SVRO would be made, based on the facts of the case. I am not saying that, theoretically, it could not happen, but the courts may decide otherwise. It would depend on the facts of the case.
Lord Moylan (Con)
Perhaps I may just add that it seems so widely drawn that the first condition, in proposed new subsection (1), is that there has to be an offence. It does not say that there has to be an offence involving violence. So, first there has to be an offence. Then you engage proposed new subsection (3)(b): during the commission of the offence, whatever it might have been, did the person involved carry a knife? If the offence was, say, a driving offence, I am sure that an SVRO would not be applied for or granted, but there is a large area of discretion here. When you take it a little further into proposed new subsection (4), it is simply an offence—the carriage of a knife and the question of “ought to have known”. So the whole thing wanders off into this speculative landscape where evidence does not seem to matter and it is all mental constructions. I am sorry for going on.
Baroness Williams of Trafford (Con)
It is no problem at all; this is Committee, where we clarify these issues. But I think it is fair to say that the trigger for the SVRO, essentially, is the conviction.
Lord Carlile of Berriew (CB)
An interesting criminal law debate is developing and I cannot resist joining in. I very respectfully suggest to the Minister that this is a situation in which the use of examples, if they are worked up, is very important and would be extremely useful. My view is that she is right about some of this but possibly not all of it, and that the noble Lord, Lord Paddick, is possibly right about quite a lot of it but wrong about some of it—for example, the relevance of previous convictions, which may be used far more these days than he imagines. Previous convictions are available as evidence of propensity and are frequently used in criminal trials. I respectfully suggest to the Minister that a series of indicative examples should be worked up and put in the Library in advance of Report, because it would make these questions much easier to answer.
Baroness Williams of Trafford (Con)
I thank my noble friend—and he is my noble friend because he has come to my rescue time and again. I am not a lawyer and even less of an expert in criminal law.
Lord Paddick (LD)
Perhaps I could just say that those examples should include, if they are right, non-violent offences where a weapon is not used in the commission of the offence in any way, where the person only has the weapon on them, and they have an accomplice who did not have a knife on them but should have known that the person had one concealed on their person when they committed a non-violent offence without using the weapon.
Baroness Williams of Trafford (Con)
I will most certainly do that. So this is offences where the knife is not actually deployed and the person with the individual with a knife in their pocket would not have known that the knife was in their pocket. Without getting myself into further trouble, I would say that the courts would take those facts into consideration—but I will elect to write to noble Lords with as many permutations and combinations as I can possibly think of before Report.
Lord Marks of Henley-on-Thames (LD)
I have no wish to get the noble Baroness into more difficulties, but the problem arises because she said that the court would have to consider the relevance of the carriage of the knife to the offence, and that is quite simply wrong. I would be very grateful if the noble Baroness, before any examples are produced, would concede that, and then discuss whether these amendments are not very important in light of the answer. There is the weakness—the lack of the nexus between the carriage of the knife and any offence that is proved.
Baroness Williams of Trafford (Con)
I think I need to reflect further on what noble Lords have said. I will try to answer the noble Lord’s question in a letter before we start talking about examples. We are, after all, in Committee, and I am learning, like other noble Lords, as we go along.
Amendments 226, 226A and 226B would remove the provisions that enable a court to issue the SVRO if two or more people commit an offence but not all of them used or were in possession of the weapon—that is slightly going back on what we were discussing. When a knife offence or offensive weapon-related offence is committed, it is not always the case that all the offenders had the weapon in their hands—as the noble Lord, Lord Paddick, pointed out—during the commission of the offence. But if the court is satisfied that a person knew or ought to have known that another person committing the offence had a knife or an offensive weapon during the commission of the offence, and this person committed an offence arising out of the same facts, we think it would be appropriate for an SVRO to be available. Again, I will put the various permutations and combinations to noble Lords in a theoretical way. This would allow SVROs to be made in relation to all the individuals who were involved and were convicted of such an offence, should the court consider an SVRO to be necessary in respect of those individuals.
This provision intends to cover situations such as a robbery or a fight where a weapon was used by one individual, but where other individuals convicted of offences related to the same facts knew, or ought to have known, that a weapon was being used or carried by another person involved in the offence, even if they themselves were not carrying the weapon. This is very similar to the point made by the noble Lord, Lord Paddick, except that that individual was brandishing the weapon.
Lord Paddick (LD)
I am sorry, but that is not what the proposed law says. It does not talk about when there is a fight and somebody uses a weapon, and a person who was with them should have known they had a weapon. What the Bill as drafted says is that anybody who commits any offence—such as, for example, smashing a car window—who has a knife in their pocket can be given an SVRO. It may be that that is what was intended, but it is not what the legislation says.
Baroness Williams of Trafford (Con)
What I am saying, and what I said earlier, is that it will be up to the courts to decide whether it is appropriate, bearing in mind the facts of the case, and whether the court thinks an SVRO in respect of an individual is necessary to protect the public or any particular members of the public in England and Wales.
Baroness Chakrabarti (Lab)
First, I want to thank the Minister and do not want her to think any of this is meant to be aggressive or to interfere with what she is doing. Secondly, these hypotheticals are incredibly important to test the provisions; they are not some attempt to be clever and dance on the head of a pin. It is super important to get the criminal law right, and that can only be done, in my view, by testing it against the sorts of scenarios being offered.
The Minister quite rightly says, “We are creating a disposal, and in the end the courts will have to administer it”. None the less, the Government are creating the disposal and setting thresholds for its availability. With respect to her, the Government must have a policy and intention, and there is therefore a valid question about whether it is the Government’s intention in drafting and pursuing this legislation that, for example, any male Sikh, or any Sikh, who carries a ceremonial knife, however small, will always theoretically be subject to this additional exposure to a disposal to which, by definition, people of other faiths will not be subject. I am not saying that to be inflammatory, but we have to get this right. The Minister herself has talked about equality impact assessments, and so on. It may be that this proposal slipped through the net and is worth looking at again before the next stage.
This is not just an issue for the Sikh community but for other people such as chefs or electricians who are carrying knives and are involved in a crime that theoretically is potentially not even violent crime but perhaps minor shoplifting, possession of prohibited drugs or whatever. They are now, suddenly, potentially subject to this disposal. It is not simple enough to assume that when a specific disposal such as this one, with draconian consequences, is made available for sentences it would never be used. The courts might rightly think that the Government’s policy must have been that if you carry a blade or point, regardless of whether you were carrying it illegally in the first place, you take your chances, and that if you get involved in shoplifting or is found in possession of drugs, that is too bad—you now get this additional penalty and it serves you right. That is the signal that we are sending on violent crime. I hope that that is not the intention but if it is, the Committee will need to know.
Baroness Williams of Trafford (Con)
We have covered a spectrum of different types of offending and behaviour. We must not forget that at the point at which—no pun intended—someone is issued with an SVRO, they will have been convicted by the court of a knife or offensive weapons offence. The court will also, I am sure, take into consideration previous patterns of behaviour. If the Sikh who got involved in a fight and had his knife with him had no previous convictions for weapons offending, that would be quite different from a repeat offender. It would be for the court to consider whether to impose the SVRO. I hope that I have made that clear and that it will become clearer to noble Lords by the examples I will provide.
Of course, we will consider, in the light of the Committee, whether we have got all the permutations and combinations right. That is what noble Lords do best—scrutinising legislation, and I have the benefit of some serious legal players around the Chamber.
I now move on to the concerns of the noble Baroness, Lady Armstrong, about the disproportionate impact that SVROs might have on some vulnerable groups—primarily women who might be coerced into carrying weapons. I completely empathise with the circumstances in which such women might find themselves. We discussed domestic violence only a few months ago and know the effect that coercive control can have on women. At the heart of what we are doing is committing to preventing offenders of all ages, genders and backgrounds becoming involved in serious violence by developing resilience, supporting positive alternatives and delivering timely interventions.
Baroness Armstrong of Hill Top (Lab)
My Lords, I thank the Minister. My amendment takes out the part that states that a person “ought to have known” that someone else was carrying, rather than that person carrying. That is the bit that is particularly pernicious in terms of the woman that I was talking about.
Baroness Williams of Trafford (Con)
I completely understand that point it in the context of the previous debate. One of the things that we will be testing as part of the pilot is the impact of SVROs on the individuals subject to them, and how to ensure that vulnerable offenders—because sometimes people are caught up in these things completely unwittingly—are directed to local intervention schemes to help steer them away from crime. But SVROs used as part of a wider crime prevention approach will send a clear message that, if people are vulnerable and want to move away from crime, and in particular if they are being coerced into carrying things, or coerced generally, we will of course support them.
Amendment 228 seeks to increase the requirements for SVROs to be made. It would require that an order can be imposed only if the SVRO is proportionate to one or more of the relevant aims of the order. It is already a requirement for the court to consider the making of the order necessary to protect the public, or any particular member of the public, including the offender, from the risk of harm, and to prevent the offender committing an offence. It would be for the court to decide the seriousness of any offence, based on the individual facts of the case, and to decide whether it is necessary and proportionate for an order to be made in respect of an individual. Any order made will be at the court’s discretion.
An individual convicted of an offence involving a bladed article or offensive weapon could cause harm to any member of the public, including particular individuals. The provisions in the Bill allow a wide range of considerations to be made, so that an SVRO will have the greatest impact and protect members of the public, including the offender themselves, from the risk of harm.
Amendments 229, 230 and 231 seek to amend the evidentiary requirements for an SVRO to be made. They would provide that the court may consider only evidence led by the prosecution and by the offender and would remove provisions that allow courts to consider evidence that would have been inadmissible in the proceedings in which the offender was convicted. We think it appropriate that the court can consider a wider range of evidence about the offender that may not have been admissible in the proceedings. This goes in some sense to the heart of what we have just been discussing. For example, in answer to the question from the noble Baroness, Lady Chakrabarti, the offender may have a history of knife carrying that would be relevant to whether an SVRO would be necessary to protect the public.
Amendment 239 would make the guidance to be issued under Clause 140 subject to the affirmative procedure, as recommended by the DPRRC in its report on the Bill. As I have indicated in response to other amendments, we are considering carefully the arguments put forward by the DPRRC and will also reflect on today’s debate before responding to the committee’s report ahead of the next stage of the Bill.
Finally, the noble Baroness, Lady Meacher—through the noble Lord, Lord Paddick—has tabled Amendment 240 to Clause 141, which makes provision for the piloting of SVROs. I talked about this earlier. I can assure noble Lords that we will take the matters set out in Amendment 240 into consideration as we progress the design work for the pilot and agree the terms of the evaluation. That said, the general point is that it is not necessary to include such a list in the Bill. The approach adopted in Clause 141 is consistent, for example, with the piloting provisions in the Offensive Weapons Act 2019 in respect of knife crime prevention orders.
Working with the four pilot forces our aims are: to monitor and gather data on a number of different measures—including, as I said earlier to the noble Lord, Lord Coaker, the impact of SVROs on serious violence; to build evidence on reoffending and the outcomes for offenders who are subject to SVROs; to understand and learn how we ensure that vulnerable people are directed to local intervention schemes; and to understand community responses to the orders.
I think we can conclude by agreeing on the need to do all we can to tackle the scourge of knife crime, which is wrecking far too many lives. I hope that I have been able to persuade noble Lords of the case for the new orders as part of our wider work to prevent and reduce serious violence, and that I have reassured the Committee—although not on certain things, on which I will have to write—that many of the issues raised will be considered as part of the piloting of SVROs in advance of any national rollout. I reiterate my commitment to consider further the DPRRC’s recommendation in relation to parliamentary scrutiny of the guidance. I hope that the noble Lord, Lord Paddick, on behalf of the noble Baroness, Lady Meacher, will be happy to withdraw the amendment.
Lord Paddick (LD)
My Lords, I thank all noble Lords for their contributions to this group, particularly the noble Lords, Lord Moylan and Lord Coaker.
The Minister asked what works. The centre-right think tank Policy Exchange recently produced a report saying that, in reducing serious violence, the emphasis should be on community policing and not on stop and search. That summarises what the noble Lord, Lord Coaker, was saying. The Minister, in earlier proceedings in the House this afternoon, talked about how trust in the police had been seriously damaged recently. Despite that, the Government are giving the police more and more powers that are likely to further damage trust in the police.
The Minister talked about communities—particularly black communities—wanting this sort of thing in order to stop their young people dying on the streets. After I left the police, I went to a pupil referral unit, and students from the unit took me to a local council estate where a young mother holding a baby had been stabbed to death. As we looked at the scene, they said to me, “Yes, we want the police to take knives off the street, but we want them to target stop and search at the people who have got the knives.” To do that, and to target stop and search at those people who are carrying knives, the police need community intelligence, and these sorts of provisions are likely to push the community away, rather than encourage people to come forward with information. Do not get me wrong: targeted, intelligence-led stop and search based on community information can be effective in taking weapons off the street, but quite clearly, as I said on Section 60, with suspicionless stop and search, only one in 100 stop and searches results in a weapon being recovered.
The noble Baroness said that these provisions are very similar to domestic violence prevention orders on the balance of probabilities versus reasonable doubt. Throughout the course of that Bill, we persistently said that that was not acceptable, so the noble Baroness should not be surprised that we are saying it about these orders. However, we need to do all we can to reduce serious violence on our streets. The difficulty is where you have provisions such as this that prove to be counterproductive.
We will come back to this at Report—I can guarantee that. But at this stage, on behalf of the noble Baroness, Lady Meacher, I beg leave to withdraw the amendment.
Lord Paddick
Lord Paddick (LD)
My Lords, I move Amendment 231A in my name and speak to the other amendments in this group. These amendments relate to what happens after a serious violence reduction order has been granted.
Amendments 231A and 231B remove the requirements for the offender to give, and update the police on, information about where they are living, including the home address on the day the order is given—which will be given to the court in any event and is therefore not necessary—any other place they regularly reside, and any place they move to or intend to spend more than a month living at. Noble Lords should ask themselves what the purpose of this power is. Is it so that the police can trace the offender, track their every move and then wait outside the place where they live, to stop and search them as soon as they leave? Create a power to stop and search someone who may or may not have carried a knife in the past if you must, whether you suspect them of having a knife on them at the time or not, but to enable, or even encourage, harassment of these individuals by supplying the police with continually updated information about their whereabouts smacks of stalking by the state.
As I will point out in a moment, SVROs can be renewed indefinitely. One of the most important ways a young criminal can turn their life around is to move away from the area where they were involved in a gang, for example, to start a new life. These provisions mean that their reputation follows them, making it even more difficult for them to be rehabilitated. They may have moved on, but the police will continue to stop and search them at will, without any reasonable cause to suspect that the individual is doing anything wrong. The offender would be justified in thinking, “What is the point? May as well be hung for a sheep as a lamb.” On the previous group, the Minister said that if an offender wants to move away from offending the Government will support them. Updating the police continually about where this young person has moved to, and enabling them to target that individual through stop and search, even though they are trying to turn their lives around, does not sound to me like supporting them in trying to move on from offending.
For similar reasons, the proposed power to give a chief constable for the area where the offender lives, and the area where the police believe the offender is or intends to come to, to apply to a court to extend or renew the SVRO should also be removed, as proposed by Amendments 235 and 236. The chief constable for the area where the offence was committed should be able to apply to have the SVRO varied, renewed or discharged—that is fair enough—but this should not be the case for any chief constable, anywhere in the country, who knows or even just thinks that the offender might be coming to their area. Offenders who genuinely want to turn their lives around should be able to move on with their lives. If they move home and fall into their old ways, the police in the area where they have come to notice can ask the chief constable in the area where the original offence was committed to make an application on their behalf. These provisions are unnecessary and potentially counterproductive in reducing serious violence.
Amendment 238 limits the number of times an SVRO can be imposed. Although each SVRO is restricted to a maximum duration of two years, SVROs can be renewed indefinitely. This means that our electrician’s mate could potentially be stopped and searched by the police, without any reasonable suspicion that he has anything unlawful on him, for the rest of his life. There are very few offences where there is not a spent period, after which the conviction no longer has to be declared. Yet the provisions in this Bill mean that, on the balance of probabilities, someone for whom there is no evidence of their ever having carried a knife could be targeted by the police for suspicionless stop and search for the rest of their life.
Lord Coaker (Lab)
These are good amendments that the noble Lord, Lord Paddick, has tabled because, as he said, they deal with what happens after an SVRO is given. The various amendments raise various questions that the Minister will need to answer. I want to highlight a specific point which, in terms of proportionality, I would like the Minister to consider. A Section 60—stop and search without suspicion—is normally given for 24 hours and, if extended beyond that, is very limited. As the noble Lord pointed out, and did so in the previous debate, this can be six months or up to two years. It can then be added to again; there is no time limit to end it. We need some clarity on that. In Committee, that is the sort of detail we want to go into.
More generally, so much of this—again, as in much legislation—will be by regulation. New Section 342B on the meaning of a serious violence reduction order includes subsection (1)(b), which says that the requirements and prohibitions will be done by order—admittedly, to be fair to the Government, by affirmative order in this case. But it is quite an ask of Parliament to pass an Act which gives the Secretary of State the ability to have these serious violence reduction orders with all sorts of requirements and prohibitions in them without us really knowing what they would be. I looked on the website and tried to find a draft, skeleton or suggested possibility of what they might look like, but I could not see one—unless I missed it. Often, with respect to legislation, you get draft regulations or a draft idea. It would have been extremely helpful for the Committee if some idea of the sorts of things that might be considered had been given to us.
New Section 342C(1) states:
“A serious violence reduction order may impose on the offender any requirement or prohibition specified in regulations made by the Secretary of State”.
Again, to be fair, that will be subject to the affirmative procedure, but these are the sorts of details which mean that we are passing this legislation almost blind in terms of some of these things. These will be really severe restrictions on the liberty of the individual. Even if they are regarded as a good thing in terms of reducing knife crime—which is what we all want to achieve—we are giving the Government the power to legislate and make all sorts of regulations and prohibitions to be included as part of a serious violence reduction order without knowing what they may be.
New Section 342B(7) says that these regulations will be made only after the pilots have taken place. I do not expect this to be done by Report, but could we ask the Government to consider giving us an idea of what these regulations and prohibitions might be as those pilot projects proceed, so that we get some idea of them as the pilots go on? We would then have some way of understanding what they might be when we come back to them.
The noble Lord, Lord Paddick, is quite right to have raised many of these issues, which seek to press the Government more so we can try to understand what they mean by some of the proposals they have listed. I ask whether more information could be given as to what prohibitions and regulations we might expect to be included in any serious violence reduction order.
Lord Marks of Henley-on-Thames (LD)
My Lords, I propose to deal with just one amendment, Amendment 233, which is concerned with the defence of reasonable excuse. I concentrate on that because my noble friend Lord Paddick has covered the ground in this group. But it seems to me—and I agree with what my noble friend and the noble Lord, Lord Coaker, have said—that this group offends against principles of our criminal law and rides roughshod over them, because the overall purpose of the Bill seems to have taken precedence over any degree of thought being given to the detail of what is actually being done.
Amendment 233 in the names of my noble friend Lord Paddick, the noble Lord, Lord Moylan, and the noble Baroness, Lady Meacher, would permit a reasonable excuse defence to an offence committed where an offender subject to an SVRO tells a constable that they are not subject to such an order. The Liberty briefing, for which we are all very grateful, points out that an offender may have committed the proposed offence of telling the police constable falsely that they are not subject to an order even where they honestly and even reasonably believe that the order—the SVRO—is no longer in force, or where they do not understand the question because English is not their first language, or for any other reason.
Looking at the proposed offences under new Section 342G(1), the reasonable excuse defence is presently available only in respect of offences under (a) or (b) of that subsection. The first is if the offender
“fails without reasonable excuse to do anything the offender is required to do by the order.”
The second is where the offender
“does anything the offender is prohibited from doing by the order.”
But there is no reasonable excuse defence available for any of the other three offences. Under (c), I think “notifies the police” means providing to the police,
“in purported compliance with the order, any information which the offender knows to be false”,
while (d) covers denying the order which is the subject of Amendment 233m which I have addressed, and (e) is where the offender
“intentionally obstructs a constable in the exercise of any power conferred by”
the legislation. None of the last three has a reasonable excuse defence available.
In thinking about this proposed section, one is reminded that reasonable excuses may arise in odd and unpredictable ways. Legislation ought to avoid criminalising any behaviour for which the citizen has a reasonable excuse, because criminalising behaviour in these circumstances brings the law into disrepute. If there is no reasonable excuse, the offence is committed and conviction will follow—but if there is a reasonable excuse, there ought to be no conviction.
We have only to remind ourselves that there may be a reasonable excuse for disobeying police officers’ requirements. Tragically, Sarah Everard was persuaded to enter Wayne Couzens’s car, with awful results, because he purported to have the right to require her to do so. We should be open to the view that automatic obedience to the requirements of a police officer is not always sensible, and that offenders, even though subject to SVROs, might well have reasonable excuses for non-compliance with police officers’ requirements.
I suggest that the Minister and her colleagues ought to think about whether reasonable excuse should not be a defence to all these offences. Initially, they might consider that there would not be many cases where a citizen would have a reasonable excuse for non-compliance. But they might also wish to reflect that that does not mean that, in those cases where citizens do have a reasonable excuse, they should be found guilty of a criminal offence. This is an important lacuna in the proposals made here—that reasonable excuse will be no answer to conviction.
Baroness Williams of Trafford (Con)
My Lords, as the noble Lord, Lord Paddick, has explained, this group of amendments deals with further aspects of the new serious violence reduction order. Amendments 231A and 231B would remove the requirement for an offender subject to an SVRO to notify the police of their home address; any changes to their home address; the address of any other premises at which the offender regularly resides or stays; or the address of any place they decide to live in for a period of one month or more.
We included notification requirements in the legislation in order to help officers to identify those subject to an order in their area. It is a common feature of other offender management regimes, including in relation to sex and terrorism offenders, so we are not breaking any new ground here. We stated in the draft statutory guidance that the police should use the notification stage to engage with the offender and clarify the effects of an SVRO: that is, to explain to the offender in ordinary language the requirements and effects of an SVRO and what offences may be committed if they breach the order. This, along with an up-to-date description, could be used to assist with future identification when conducting a stop and search. It is therefore important that we keep the notification requirement as currently drafted to ensure that officers are able properly to identify those subject to an order.
Amendment 233 would create a defence so that an offender can tell an officer that they are not subject to an SVRO if they have a reasonable excuse to do so. I do not see any circumstances where it would be reasonable for an offender not to tell an officer that they are subject to an SVRO if they are asked. It may be that the noble Lord wants to cover circumstances where an offender subject to an SVRO has a reasonable excuse for carrying a knife. In such circumstances, it would be for the police, and ultimately the courts, to decide whether the reasonable excuse defence was made out in the event that the offender was arrested and then charged with an offence in relation to the possession of a bladed article or offensive weapon.
Lord Paddick (LD)
My Lords, I am again grateful to the noble Lord, Lord Coaker, for his support on the duration of SVROs, about which I did not hear an explanation from the Minister. I presume that the Committee can assume that we are right that SVROs can be renewed indefinitely and that there is no legal restriction on that. That is clearly unacceptable, and we will return to it on Report.
The noble Lord, Lord Coaker, also made an important point about the blank cheque nature of the prohibitions that can be imposed when somebody is subject to an SVRO. They will be decided only by regulation, which on all accounts the House will not see until after the Bill has received Royal Assent.
I also thank my noble friend Lord Marks of Henley-on-Thames for covering my omission in not talking about the reasonable excuse defence amendment.
The Minister said that we are not breaking any new ground. With respect, allowing the police to stop and search somebody purely on the basis of previous conduct without any reason to suspect that they have something on them at the time of the stop and search is breaking new ground. Therefore, different rules should apply.
I understand the provisions in the Bill about various chief constables in various parts of the country being given the power to vary or extend these orders, but, again, the Minister did not answer the question why the chief constable in that area cannot simply ask the chief constable where the original order was made to vary, revoke or extend.
The Minister seems to place a lot of reliance on the pilot schemes. I am reminded of my lengthy service in the Metropolitan Police, where I was told that there was no such thing as an unsuccessful pilot. It was rather telling that the Minister said that account would be taken of what happens during the pilots before the SVROs are rolled out to the whole of England and Wales, but not “if” the pilots prove to be effective, they will be rolled out to the rest of England and Wales.
However, we will return to this on Report. I beg leave to withdraw the amendment.
“(9) In this section, “home address”, in relation to the offender, means—(a) the address of the offender’s sole or main residence, or(b) if the offender has no such residence, the address or location of a place where the offender can regularly be found and, if there is more than one such place, such one of those places as the offender may select.”Member’s explanatory statement
This amendment provides a definition of “home address” for the purposes of the notification requirements which must be included in a serious violence reduction order.
The Deputy Chairman of Committees (Lord Rogan) (UUP)
My Lords, the noble Baroness, Lady Brinton, will be taking part remotely in debate on the following amendment.
Amendment 240A
“Women’s Justice Board
(1) There is to be a body corporate known as the Women’s Justice Board for England and Wales.(2) The Board is not to be regarded as the servant or agent of the Crown or as enjoying any status, immunity or privilege of the Crown; and the Board’s property is not to be regarded as property of, or held on behalf of, the Crown.(3) The Board must consist of 10, 11 or 12 members appointed by the Secretary of State.(4) The members of the Board must include persons who appear to the Secretary of State to have extensive recent experience with women in the criminal justice system.(5) The Board has the following functions, namely—(a) to meet the particular needs of women in the criminal justice system;(b) to monitor the provision of services for women in the criminal justice system;(c) to advise the Secretary of State on—(i) how the aim in subsection (5)(a) might most effectively be pursued;(ii) the provision of services for women in the criminal justice system;(iii) the content of any national standards the Secretary of State may see fit to set with respect to the provision of such services, or the accommodation in which women are kept in custody; and(iv) the steps that might be taken to prevent offending by women;(d) to monitor the extent to which the aim in subsection (5)(a) is being achieved and any standards met; (e) for the purposes of paragraphs (a) to (d) above, to obtain information from relevant authorities;(f) to publish information so obtained;(g) to identify, make known and promote good practice in—(i) meeting the particular needs of women in the criminal justice system;(ii) the provision of services for women in the criminal justice system;(iii) the prevention of offending by women;(iv) working with women who are, or are at risk of becoming, offenders;(h) to commission research in connection with such practice;(i) with the approval of the Secretary of State, to make grants to local authorities and other persons for the purposes of meeting the aim in subsection (5)(a) and the provision of services to women in the criminal justice system, subject to such conditions as the Board considers appropriate, including conditions as to repayment;(j) to provide assistance to local authorities and other persons in connection with information technology systems and equipment used or to be used for the purposes of the aim in subsection (5)(a) and the provision of services to women in the criminal justice system;(k) to enter into agreements for the provision of accommodation for women in the criminal justice system, but no agreement may be made under this paragraph in relation to accommodation for women in the criminal justice system unless it appears to the Board that it is expedient to enter into such an agreement for the purposes of subsection (5)(a);(l) to facilitate agreements between the Secretary of State and any persons providing accommodation for women in the criminal justice system;(m) at the request of the Secretary of State, to assist in carrying out the Secretary of State’s functions in relation to the release of offenders detained in accommodation for women in the criminal justice system; and(n) annually—(i) to assess future demand for accommodation for women in the criminal justice system;(ii) to prepare a plan setting out how they intend to exercise, in the following three years, the functions described in paragraphs (k) to (m) above, and any function for the time being exercisable by the Board concurrently with the Secretary of State by virtue of subsection (6)(b) below which relates to securing the provision of such accommodation, and(iii) to submit the plan to the Secretary of State for approval.(6) The Secretary of State may by regulations made by statutory instrument—(a) amend subsection (5) above so as to add to, subtract from or alter any of the functions of the Board for the time being specified in that subsection; or(b) provide that any function of the Secretary of State which is exercisable in relation to women in the criminal justice system is exercisable concurrently with the Board.(7) The power of the Secretary of State under subsection (6)(b) includes power—(a) to provide that, in relation to any function that is exercisable by the Secretary of State in respect of particular cases, the function is exercisable by the Board only— (i) where it proposes to exercise the function in a particular manner, or(ii) in respect of a class of case specified in the order, and(b) to make any supplementary, incidental or consequential provision (including provision for any enactment to apply subject to modifications).(8) No regulations under subsection (6) may be made unless a draft has been laid before and approved by a resolution of each House of Parliament.(9) In carrying out their functions, the Board must comply with any directions given by the Secretary of State and act in accordance with any guidance given by the Secretary of State.(10) A relevant authority—(a) must furnish the Board with any information required for the purposes of subsection (5)(b), (c) or (d) above; and(b) whenever so required by the Board, must submit to the Board a report on such matters connected with the discharge of their duties as may be specified in the requirement.A requirement under paragraph (b) above may specify the form in which a report is to be given.(11) The Board may arrange, or require the relevant authority to arrange, for a report under subsection (10)(b) above to be published in such a manner as appears to the Board to be appropriate.(12) In this section “relevant authority” means a local authority, a chief officer of police, a local policing body, a local probation board, a provider of probation services, a clinical commissioning group and a local health board.(13) Schedule (Women’s Justice Board: further provisions) has effect.”Member’s explanatory statement
This new Clause makes provision for the establishment of a “Women’s Justice Board”, along the lines of the Youth Justice Board. The drafting closely follows the form of the provisions establishing the YJB in the Crime and Disorder Act 1998.
Lord Marks of Henley-on-Thames (LD)
My Lords, Amendments 240A and 259C in my name and that of my noble friend Lord German, who has had to leave, call for the establishment of a women’s justice board. It has been pointed out in Committee that these are very long amendments. I understood from the noble Viscount, Lord Hailsham, that the second of them may be the longest in what is still, on day 9, an extremely full Marshalled List, but the drafting is modelled on the drafting of the legislation establishing the Youth Justice Board for England and Wales in the Crime and Disorder Act 1998. I do not propose to spend any time considering its detail.
However, it is widely acknowledged that the Youth Justice Board for England and Wales has been a great success. It has benefited from the effect of concentrating effort, research, learning and resources on youth justice. It has focused on recognising and addressing the difficulties of young offenders in the criminal justice system and on helping children to achieve their potential while aiming to minimise the harms that follow from young people’s contact with the system.
Perhaps most significantly, it has had the outcome of the number of children entering the youth justice system reducing year on year. Between March 2006 and 2020, the population of under-18s in custody in England and Wales fell from 2,832 to an average of 780 in the year 2019-20. Of course, the remaining cohort represent the most intractable cases and present the most difficulties. Nevertheless, that success in reducing youth offending has been remarkable. It is the aim of these amendments to establish a women’s justice board that can produce similar successes.
Much has been attributable to the success of the Youth Justice Board in attracting extremely effective and committed leadership. On these Benches, we are very proud of the work that has been undertaken by my noble friend Lord McNally, but the leadership of successive chairs, such as Frances Done and Charlie Taylor, as well as the current chair, Keith Fraser, has been a major factor in the board’s success. Establishing a women’s justice board on similar lines would also be likely to attract effective leaders, who would bring immeasurable benefit to women in the criminal justice system.
Baroness Brinton (LD) [V]
My Lords, I will speak briefly in support of Amendment 240A and to agree with everything my noble friend Lord Marks said. In particular, I echo his support for the work of the Youth Justice Board over the years.
Amendments earlier today have discussed the problems with the regime of youth offenders, and the Youth Justice Board has proved that this particular expertise is vital in a holistic approach to youth offending. A key element of that is the specialist training for all staff in contact with young people in the criminal justice system. The Youth Justice Board has very successfully reduced the number of young people in custody.
Many of the amendments to the Bill are about women, whether around violence against women and girls or the specific difficulties that women and girls face in the criminal justice system. Time and again, we have heard that different parts of the criminal justice system—police, courts, the Prison Service and probation —do not understand the particular problems that these women face. It is very important to note that the majority of female offenders have committed non-violent offences, and that a large proportion have suffered domestic and sexual violence or coercive control, usually at the hands of their partners.
The creation of a women’s justice board would mirror the principles behind the Youth Justice Board. It would oversee the key issues relating to prevention, custody and rehabilitation, and ensure that everyone in the justice system—not just the criminal justice system but also the family courts system—would receive specialist training.
One important area to consider is alternatives to custody. These should be consistently used, where appropriate, because evidence suggests that they work much better. There are benefits for the welfare of children; this should be considered when sentencing mothers and carers, to prevent the lives of their children being more disrupted. There is also evidence that this will reduce the chances of their children having problems at school and entering the criminal justice system themselves. The wider benefits of maintaining family and community links mean that female offenders’ rehabilitation will be more successful.
I know that the number of women offenders with custodial sentences has reduced, but this Government have placed the protection of women, especially those at risk from violence, at the heart of the Bill. The creation of a women’s justice board would be a key pillar in ensuring that women are given the support that they need to prevent them committing offences and to take into account their family responsibilities in considering custody and rehabilitation.
Lord Ramsbotham (CB)
My Lords, I support Amendments 240A and 259C, so comprehensively introduced by the noble Lord, Lord Marks of Henley-on-Thames. Ever since the formation of the Youth Justice Board, I have been keen on the idea of a women’s justice board, with the accompanying offender management teams, particularly if it was matched by a Prison Service appointment of a director of women’s prisons—a change to the operational management structure of the Prison Service that the MoJ should consider, as I advocated to the Minister when debating an earlier amendment.
The Minister for Prisons and Probation could chair an executive board, consisting of the directors-general of the prison and probation services and the chairmen of the Youth Justice Board and the women’s justice board, obviating any need for Her Majesty’s Prison and Probation Service, which merely inserts a layer of bureaucracy into the executive board—in other words, between the Secretary of State for Justice and individual prison governors.
Baroness Jones of Moulsecoomb (GP)
My Lords, I absolutely love this amendment—that is probably the kiss of death for it, so I am sorry about that. The noble Lord, Lord Marks of Henley-on-Thames, has a superb idea in seeking to establishing a women’s justice board. Importantly, it would not just look at prisons, courts and policing but would advise on the steps that should be taken to prevent offending by women in the first place. That is crucial. Obviously, the women’s prison population is very different from the men’s: far fewer are convicted of violence, sex offences and drugs offences, with the majority being sentenced for low-level offences such as theft, and trivial things such as non-payment of the TV licence or council tax debt. As has been said, women in prison are also very likely to be victims as well as offenders, with more than half of women reporting suffering domestic violence and more than half reporting childhood trauma.
I know the Government have a whole thing about being tough on crime, but actually, you have to be fair as well. At the moment, the Government are being totally unfair to all kinds of groups and populations within our society: this would be a good way to start rebalancing.
Baroness Butler-Sloss (CB)
My Lords, although we have equality—quite rightly—there is no doubt that women need to be dealt with differently from men in their situations of going to prison and in prisons. There is no reason not to be tough on crime, but there is every reason to follow these two admirable amendments from the noble Lord, Lord Marks of Henley-on-Thames. It is time that women’s very special situations were recognised, partly as the mothers of children—we have had some appalling stories of women in prison who are pregnant—but partly, as the noble Baroness, Lady Jones, just said, to stop them offending and to find the best way to deal with them. It may well be that prison is necessary for some of them, but it may well not be necessary for some of those who actually do go to prison if this new board were in place and could provide some of the services that are so admirable in the youth justice system. So I strongly support these two amendments.
Lord Pannick (CB)
My Lords, I add my support to these amendments. Will the Minister, when he comes to reply, agree that the application of the justice system to women poses especial challenges for everyone involved in the justice system, from the Secretary of State downwards? Does he agree that, at the moment, regrettably, there is a crisis of confidence as to how the criminal justice system in particular, but also the civil justice system, addresses the needs of women? Does he therefore accept, as has been suggested by previous speakers, that the creation of a women’s justice board would focus much-needed attention on these important topics?
Earl Attlee (Con)
My Lords, my role as a loyal government Back-Bencher is to help my noble friend the Minister, and I think I can do that best by strongly supporting these amendments.
Lord Falconer of Thoroton (Lab)
We on this side of the Committee strongly support these excellent amendments. The Youth Justice Board was set up in 1998. Its first chair—a Member of this House, the noble Lord, Lord Warner—gave it a really good start. The whole point is that it gives real drive, not as part of government but within the state, to make changes, because everybody recognises that children and young people have different needs, both to divert them from the criminal justice system and when they are there. Similarly, in respect of women, this is a real opportunity; give it drive.
The Parliamentary Under-Secretary of State, Ministry of Justice (Lord Wolfson of Tredegar) (Con)
My Lords, as the amendments’ explanatory statements make clear, and as the noble Lord, Lord Marks of Henley-on-Thames, identified, the intention is to provide for the establishment of a women’s justice board for England and Wales which mirrors the rather lengthy provisions setting up the Youth Justice Board. I am grateful to the noble Lord for his kind words. I can assure him that I gave his amendment very careful thought, and my approach to it has not been adversely affected by the support given to it by the noble Baroness, Lady Jones of Moulsecoomb. I also heard what my noble friend Lord Attlee said about his role being to help me: with noble friends being so helpful—well, I will leave that one there.
Lord Marks of Henley-on-Thames (LD)
My Lords, I am very grateful for the support of noble Lords from around the House for the proposal to establish a women’s justice board. I pick on two points made by the noble and learned Baroness, Lady Butler-Sloss, and the noble Lord, Lord Pannick, arguing that women have very special needs. Those are sufficient justification for considering the establishment of a women’s justice board.
I then move to what the noble and learned Lord, Lord Falconer, said about the establishment of the Youth Justice Board. He talked about how it gave “drive” to the consideration of the needs of young offenders and the assistance and help given to them; I should have mentioned the work of the noble Lord, Lord Warner, as the board’s first chair because it was extremely important. It provides some answer to the point made by the Minister, who picked up on the issue of time. The Youth Justice Board was established in 1998. Under the chairmanship of the noble Lord, Lord Warner, it started work in that year. It is 23 years since then, and every one of those years has been a success. That is extremely important. In the view of those who spoke in favour of this amendment, we could get equivalent drive and movement in catering for the special needs of women through the establishment of a women’s justice board. It is entirely artificial to draw a distinction between youth justice, where there is certainly a separate structure, and women’s justice, where there is no separate structure and women offenders are treated as part of the adult population.
The noble and learned Baroness, Lady Butler-Sloss, and my noble friend Lady Brinton drew attention to the family needs of women and the devastation produced for women and their children by contact with the criminal justice system. When it is acknowledged that women in the system have very particular needs, as the Minister did fairly, it is enough for me to say that the distinction he drew is artificial. I also accept my noble friend Lady Brinton’s point that the women’s justice board would deal with family court issues as well as criminal court issues. Although I have talked about the criminal justice system, the wider justice system and its help for women are also seriously in need of the extra drive of which the noble and learned Lord, Lord Falconer, spoke.
Saying that, I detected some flexibility in the Minister’s speech. I hope that, in discussions with him between now and Report, we may find some room for movement. On that basis, even if he does not admit that flexibility now, I beg leave to withdraw the amendment.
Earl Attlee
“Training for offenders
(1) The Sentencing Code is amended as follows.(2) After section 276, insert—“276A Detention for Training at Her Majesty’s pleasure for offenders aged at least 18 but under 27(1) A sentence of Detention for Training at Her Majesty’s pleasure is available to a court dealing with an offender for an offence where—(a) the offender is aged at least 18 but under 27 when convicted,(b) the offence is punishable by that court with imprisonment in the case of a person aged 21 or over,(c) the court is not required to pass a sentence of—(i) detention during Her Majesty’s pleasure (see section 259), or(ii) custody for life (see sections 272 and 275), and (d) the court is satisfied the offender would benefit from the training that would be provided.(2) The power of the court to impose such a sentence is not subject to section 230 (threshold for imposing discretionary custodial sentence).(3) Section 244 of the Criminal Justice Act 2003 (duty to release) is not applicable to a sentence of Detention for Training at Her Majesty’s pleasure.276B Term of sentence of Detention for Training at Her Majesty’s pleasure(1) The maximum full term of Detention for Training at Her Majesty’s pleasure that a court may impose for an offence is the same as the maximum term of imprisonment that it may impose for the offence in the case of a person aged 21 or over.(2) The minimum term of a sentence of Detention for Training at Her Majesty’s pleasure is 12 months.(3) The term of a sentence of Detention for Training at Her Majesty’s pleasure must be the term (not exceeding the permitted maximum) that in the opinion of the court is commensurate with—(a) the seriousness of the offence,(b) providing enough time for the three stages of Detention for Training at Her Majesty’s pleasure to be effective, and(c) providing a sufficiently strong incentive for the offender to be motivated to meet the improvements in conduct, training, education and performance determined under section 276C in order to move onto Gradual and Safe Release under section 276I.(4) In forming its opinion for the purposes of subsection (3), the court must take into account all the information that is available to it about the circumstances of the offence, or of it and the associated offence or offences, including any aggravating or mitigating factors.(5) The pre-sentence report requirements in section 30 apply to the court in relation to forming that opinion.(6) See section 232 for additional requirements in the case of an offender suffering from a mental disorder.(7) The court may impose a sentence of Detention for Training at Her Majesty’s pleasure only if it is satisfied that the offender would benefit from it.276C Improvements in conduct, training, education and performance(1) When imposing a sentence of Detention for Training at Her Majesty’s pleasure, subject to subsection (2), the court must determine what objectively measured improvement in conduct, training, education and performance is to be achieved by the offender before being considered for the final stage of training (gradual and safe release).(2) When making the determination mentioned in subsection (1) the court must set improvement requirements that—(a) are demanding but achievable,(b) can be objectively measured using the system mentioned in subsection (3),(c) take into account the capacity of the offender to improve, given sufficient incentive,(d) take into account the seriousness of the offence in question,(e) take into account the needs of the offender,(f) take into account the availability of training offered by the Secretary of State, and(g) significantly improve the chances of the offender exclusively engaging in legitimate employment. (3) The Secretary of State must devise and implement an objective system for measuring the offender’s improvement in education, training and conduct.276D Location and security of training and electronic communications(1) The Secretary of State must locate the necessary training centres in rural locations sufficiently remote to—(a) sever the trainees from malign gang influences,(b) eliminate trainees’ access to illegal substances,(c) eliminate trainees’ access to mobile phone signals and illegal electronic equipment,(d) provide the necessary security by means of remoteness rather than physical security, and(e) minimise expenditure on physical security.(2) Subject to subsections (3) and (4) the Secretary of State may—(a) direct telecommunication companies to take steps to have the effect of electronically isolating trainees, and(b) make a drone exclusion order and emit electronic signals designed to cause any drone to crash or to come under the control of the Secretary of State.(3) Before making any direction under subsection (2), the Secretary of State must individually consult every adult resident directly affected by the requirements of any such direction.(4) The Secretary of State may offer inducements and compensation to residents adversely affected by directions made under subsection (2).(5) The Secretary of State may conduct the training mentioned in sections 276G and 276H in such locations as he or she sees fit.276E Training teams (1) The Secretary of State may arrange for trainees to undertake their training as part of a team.(2) The Secretary of State may arrange for training teams to be composed with trainees from multiple regions.(3) The Secretary of State may arrange that the teams are competing against each other, especially in exercises.(4) The Secretary of State may arrange that a team can be disadvantaged in terms of privileges and conditions for the team if—(a) the team does not predominate in a training exercise, or(b) a member of the team commits misconduct. 276F Components of Detention for Training at Her Majesty’s pleasure(1) There are to be three stages of Detention for Training at Her Majesty's pleasure—(a) Basic Compliance Training;(b) Employability Training;(c) Gradual and Safe Release.(2) Trainees must be required to pass out on each stage of training before attempting a later stage of the training.276G Basic Compliance Training(1) The Secretary of State must structure Basic Compliance Training to instil—(a) hope,(b) pride, and(c) discipline.(2) The components of Basic Compliance Training must include, but are not limited to— (a) hope for the future,(b) appearance, dress and bearing,(c) teamwork,(d) nutrition and cooking,(e) basic literacy and numeracy,(f) map reading,(g) first aid training,(h) personal conduct and anger management, both theory and practice, and(i) field craft and camping.(3) The purpose of Basic Compliance Training is to allow the Secretary of State to take greater risks with the trainee and to give the trainee increased personal responsibility for his or her actions.276H Employability Training(1) Employability Training must be composed of trade training, education and personal development.(2) The Secretary of State must structure Employability Training to minimise the probability of re-offending and maximise the offender’s chances of securing permanent good quality legitimate employment.(3) The components of Employability Training must include, but are not limited to—(a) hope for the future,(b) dress and bearing,(c) teamwork,(d) nutrition and cooking,(e) basic literacy and numeracy,(f) map reading,(g) first aid training for a First Aid at Work Certificate,(h) personal conduct and anger management, both theory and practice,(i) adventure training,(j) training in basic fire fighting,(k) training in safe operation of hand-held power tools,(l) training in basic risk assessment,(m) training to acquire a basic construction skills certificate,(n) training to operate a forklift truck,(o) training to erect a prefabricated aluminium access tower, and(p) training exercises both long and short, to test and practise skills.276I Gradual and Safe Release (1) The Secretary of State must structure Gradual and Safe Release to minimise the probability of re-offending and maximise the offender’s chances of securing accommodation and permanent good quality employment.(2) The components of Gradual and Safe Release must include, but are not limited to—(a) arrangements for safe accommodation, not necessarily in the area where the offender was previously resident,(b) arrangements for employment to suit the capability of the offender,(c) requirements not to visit designated areas or places,(d) curfew requirements,(e) abstinence from substance abuse requirements, and(f) tagging requirements. 276J Release on temporary licence for offenders Detained for Training at Her Majesty’s pleasure(1) The Secretary of State may grant Release On Temporary Licence (ROTL) to any offender serving a sentence of Detention for Training at Her Majesty’s pleasure subject to the conditions in subsection (3).(2) When granting ROTL the Secretary of State may require the offender to—(a) wear an approved tag,(b) adhere to geographical limits,(c) adhere to sobriety requirements,(d) not engage in substance abuse,(e) not use an unauthorised mobile phone or other types of electronic equipment, and(f) not meet or communicate with certain persons or classes of persons.(3) The conditions mentioned in subsection (1) are—(a) an offender who has not passed out on Basic Compliance training can be granted ROTL only in exceptional circumstances,(b) ROTL can be granted for weekend leave,(c) ROTL can be granted to enable an offender to travel from one training location to another, and(d) when the offender is on the final stage of Gradual and Safe Release, ROTL can be granted to attend work or live away from prison facilities for extended periods.276K Effect of non-compliance or not engaging with training(1) Where the conditions mentioned in subsection (2) are met, the Secretary of State may apply to the court to have the remaining part of the offender’s sentence converted to a sentence of imprisonment for the remaining portion of the sentence.(2) The conditions mentioned in subsection (1) are that the offender sentenced to be Detained for Training at Her Majesty’s pleasure consistently—(a) fails to make reasonable efforts to comply with the training requirements,(b) makes little or no attempt to address areas for improvement identified by the court under section 276C, or (c) fails to honour the terms of ROTL under section 276J.276L Appointment of mentor for offenders Detained for Training at Her Majesty’s pleasure(1) The Secretary of State must appoint a mentor to each offender Detained for Training at Her Majesty’s pleasure.(2) The role of the mentor is to provide—(a) a positive male role model for the trainee,(b) a lay person with the necessary skills to look after the interests of the trainee,(c) a person to whom the trainee can complain about any mistreatment, perceived or real,(d) a person who can skilfully deal with bureaucracy on behalf the trainee when on Gradual and Safe Release, and(e) a person who can attend any passing out or other events.(3) The Secretary of State and prison governors must engage constructively with any mentor appointed under this section when the mentor is undertaking these duties.””
Earl Attlee (Con)
My Lords, I have already sent a detailed paper to most noble Lords. I would like to make it clear that I will not seek the opinion of the Committee or the House at any point. When we debated short sentences and Amendments 212 and 213, I think that most of the Committee was sure that the current prison system was largely ineffective at preventing reoffending. After looking closely at our penal system during 2018 and 2019, I would say that the current system is not able, or even designed, to secure an improvement in education, training and conduct. Without improvements in these areas, reoffending is inevitable. Noble Lords frequently berate Ministers for the poor state and ineffectiveness of our prisons. Rather fewer noble Lords have been prepared to suggest significant reforms and how we could do very much better.
Internationally, we need to be an exemplar rather than a laggard in prison reform. Although there are many areas of potential improvement in our prison system, none is as pressing or potentially beneficial as the management of prolific minor offenders, or PMOs. I am sure that the Committee will accept that it is almost impossible for a functionally illiterate or innumerate young person to secure legitimate employment. At YOI Feltham, I have seen high-quality, well-motivated teachers with good facilities struggle to get illiterate offenders even to sit down in a classroom, let alone learn. I am not convinced that a conventional classroom environment is the right one for these youngsters. Furthermore, they need exceptionally strong incentives to improve their standard of education as well as their conduct. Unfortunately, there can be cultural issues pulling in the opposite direction.
Several factors militate against securing an improvement in their education, training and conduct. Most significantly, within conventional prisons, there is a drug and gang culture with a huge illicit economy, coupled with an illegitimate hierarchy. All this is facilitated by illegal mobile phones. In recent years, I have come to hugely admire prison officers and governors for their work. They do their very best, but it is the regime we ask them to operate that is a problem.
With my Amendment 241, I propose a new sentence for PMOs, and that is detention for training at Her Majesty’s pleasure, or DFT. Release would be dependent upon achieving the required, objectively measured improvements in education, training and conduct, and the level of improvement required would be set by the courts. If the offender fails to make reasonable efforts to comply, the court would be able to require the whole of the rest of the sentence to be served in the conventional secure estate. That is a very strong incentive.
I would like to be clear that this is not a rehash of “short, sharp shock”, a scheme that was designed to be beastly to offenders in order to deter them from reoffending; nor is it a boot camp. With the former, little was done to improve offenders’ skills, so it was not surprising that they continued to reoffend.
The training would be undertaken in remote rural locations in order to sever connection with local gangs, drugs and illegal mobile phones. The remoteness would provide the security rather than the secure estate, with its forbidding stone walls. The training would be undertaken as part of small, multiregionally composed teams, and being a leading light in the Peckham Warriors would not cut much ice. Since the training would be demanding and fulfilling, at the end of the day the trainees would be more interested in sleep than drugs or getting up to mischief.
I will not weary the Committee with too much detail, as it is set out in my amendment, mainly on page 14 and 19 of the Ninth Marshalled List, as well as in my paper. However: the first component is what I call “Basic Compliance Training”, which is designed to instil hope, pride and discipline. Hope is extremely important, because we currently have a suicide rate in the prison system of at least one per week. The purpose of BCT is to allow greater risks to be taken at later stages of the training. One of these could include the use of ROTL, if appropriate, to comply with the recommendations of the noble Lord, Lord Farmer, with respect to contact with families.
The employability training phase is self-explanatory. The point is that trainees need to be given some useful qualifications to make them employable. Take construction work: you cannot just put on a pair of safety boots and walk on to a construction site as a labourer. You need to have a basic construction skills certificate to be safe and competent. DFT would provide the necessary training and testing. This is just an example. Why are we not already providing PMOs with that training—universally and not just in one or two lucky cases?
At the risk of enraging the Daily Mail, I can assure the Committee that there would be elements of fun in the training. This could be especially so in exercises which might be held in an international aid scenario. In my experience, fun is essential to motivate trainees within a disciplined organisation.
The final stage is “Gradual and Safe Release”, which is essentially a glide path to full release rather than what we talked about at Amendment 210, which is a binary “in or out” situation and often doomed to failure. The Committee has already discussed UC and accommodation problems associated with release. There is also provision for a mentor to prevent a variety of adverse outcomes and help the trainee deal with bureaucracy on release.
Baroness Jones of Moulsecoomb (GP)
My Lords, I like many elements of the proposal from the noble Earl, Lord Attlee. We all know that the youth justice system, in theory if not in practice, is focused on diverting young people from criminal justice towards a better life. At 18 years of age, however, this sort of falls off a cliff as young adults get dropped into the mainstream criminal justice system and are left to fend for themselves. This leaves a huge population of young adults stuck in the adult prison system and missing out on essential learning and the foundations for developing work, family and social lives. These young people are also often illiterate.
Those important years of young adulthood—when one is no longer a child but lacks experience and wisdom—are lost in prison, and can never be retrieved. I like the aspect of this amendment, therefore, that would create a structured system of personal development and rehabilitation for those too old for young offender institutions but too young to be written off by society as lifelong criminals. There are issues about the tuition they would be given, because many of them might have problems such as autism or dyspraxia: they would need specialist help. That they would, however, be leaving better informed and educated than they went in is a positive for them as individuals and for society.
Lord Hope of Craighead (CB)
My Lords, I have some sympathy for the noble Earl’s amendment because of two experiences of mine. First, I had to undergo 10 weeks of basic compliance training when I did my National Service. It had many of the elements listed here. Hope for the future was there. Certainly, a lot of attention was paid to dress and bearing, teamwork, first aid training, conduct and anger management, fieldcraft and so on. I underwent that for 10 weeks as a recruit. Later in my national service, having become a commissioned officer, I was responsible for training recruits, and I noticed a remarkable difference in their behaviour and appearance between the beginning and the end of the 10 weeks. That impressed on me the value of the training that the Army was then able to provide.
At a later stage in my life, when I was prosecuting criminals, usually in Glasgow High Court, a lot of those who were being prosecuted I could see in my mind’s eye as people who might have been among my platoons of people undergoing training. My great regret was that we had not been able to get hold of them before the gang fights took place that led them to being prosecuted and ultimately going to prison. There is a lot of force in what the noble Earl has suggested. In those days—I am talking about my national service days—there was an enormous force available within the Army to conduct all these procedures. This is not easily managed. You are required to train the trainers and you must have the facilities. However, the philosophy and thinking behind the noble Earl’s amendment has a great deal to recommend it. He is talking about people who have already been convicted, but it would be lovely if one could intercept them before they got into the criminal system in the beginning. We cannot do that but, at least if they have been convicted, we can do something to prevent reoffending, which is what I think his amendment is driving at.
Earl Attlee (Con)
My Lords, perhaps I may respond to what noble Lords have said. The noble Baroness, Lady Jones of Moulsecoomb, mentioned young offender institutions. When I was getting educated by Frances Crook, I asked her, “How often do inmates at a YOI get taken out on camp?” She said to me, “John, you should ask how often they are taken out of their cells.”
In response to the noble and learned Lord, Lord Hope of Craighead, I am not proposing conscription or a national service-type solution. However, the points that he makes are absolutely what is informing my thinking. He made a valid point about the need for instructors and I am not proposing the use of the military to provide that function. Prison officers ought to be taking up that role and I envisage, among other things, youngsters who trained as Outward Bound instructors who cannot necessarily get particularly well-paid employment then training as prison officers and being double-hatted. There are a lot of things that we could do if we wanted to do them.
Lord Marks of Henley-on-Thames (LD)
My Lords, I will not address the detail of the noble Earl’s amendment, but I agree with the noble Baroness, Lady Jones, and the noble and learned Lord, Lord Hope of Craighead, that there is a great deal of merit in the call for more and better training within the penal system. We have long taken the view that training within prisons in particular is inadequate, poorly arranged and often unavailable. We therefore commend the noble Earl for the thrust of his amendment and certainly commend him for the care and dedication that he has given to setting it out in detail and in the briefing that he circulated.
We are not convinced of the need for a new sentence of detention for training at Her Majesty’s pleasure but we agree with the heart of the amendment, which is the focus on skills to train for future employment, for which there is a great need. The classroom-style of training does not always work. What is needed is training for skills on the job and for soft skills because, as the noble Baroness, Lady Jones, pointed out, not everyone is suitable for the basic training that perhaps the noble Earl has in mind. There should be a combination of practical, soft and technological skills. We are all for better training. However, we seek the Government’s work to be directed towards the provision of that sort of training—better training and more of it—within the criminal justice system and overcoming the barriers to prisoners being work-ready by the time they finish their terms of imprisonment because, at the moment, there is a serious deficiency in that area.
Lord Falconer of Thoroton (Lab)
My Lords, I join noble Lords in commending the noble Earl for the effort and work that he has put into this and the fact that he has thought it through. I also commend what the noble and learned Lord, Lord Hope of Craighead, said. It was obviously not a detention for training centre that he was passed to, but his experience was successful in diverting him from the criminal justice system. That is an indication that it worked, even if he ended up in the criminal justice system as the Lord President of the Court of Session and a member of the Supreme Court.
I very much agree with what the noble and learned Lord, Lord Hope, the noble Lord, Lord Marks, and the noble Baroness, Lady Jones, said. There are parts of this that we would all agree with. However, we on this side would not support this as a separate sentence. If one looks at the detail, it requires the setting up of a number of rural detention centres. The right thing is for the Government to look at the elements aimed at trying to rehabilitate those in the criminal justice system and use them in the existing system, rather than setting up a whole new network. We admire the noble Earl’s work but think that this is not the appropriate way forward.
Lord Wolfson of Tredegar (Con)
My Lords, the amendment from my noble friend Lord Attlee would seek to introduce a new sentence of detention for training at Her Majesty’s pleasure. It is aimed at offenders who are at least 18 and under 27. The key principle is that release would be gradual and dependent on the offender reaching the required performance levels in conduct, education and training. It would be served in training sites in remote rural areas.
I thank my noble friend sincerely for presenting his genuinely interesting idea—I was going to say “novel”, but we have all watched “Yes Minister”. He has done what he said others have not by thinking positively and constructively about what we can do in the future, rather than just criticising what we do now. I think that we all share his desire to reduce the reoffending rate for young adults. Training and education can enable people to turn their lives around and stop reoffending. I reassure my noble friend and the Committee that the Government are already taking action that addresses those issues.
My noble friend is right to be concerned that offenders leave prison illiterate and innumerate and is right to say that that significantly increases the prospects that they will reoffend. We all share those concerns. I can reassure the Committee that many offenders already achieve accredited qualifications in the fundamental basic subjects of English and maths while in prison. We recently published data that shows that, between April 2019 and March 2020, over 30,000 prisoners started English and maths courses and over half of this number completed the courses and received accreditations. Over and above that, many more will also have undertaken vocational training. However, we are not sitting on our laurels. We recognise that there is more to do. We welcome external scrutiny by the Education Select Committee, which has launched an inquiry into prison education, and Ofsted, which recently announced that it will be conducting a review of reading in prisons.
On employment, we want to make sure that the prison education and skills offer for prisoners is aligned with what employers want and need. We know that there is a correlation between getting a job when you come out of prison and not reoffending. We want to prepare prisoners for employment and the Deputy Prime Minister has made that a clear priority. We want to have partnerships with more businesses and build on the work that we already do with companies such as Halfords, Timpson and Willmott Dixon. We are also making sure that the Civil Service plays its part. In the beating crime plan, we have committed to recruiting 1,000 prison leavers into the Civil Service by 2023.
Over and above that, we want to make sure that we have effective community supervision. Not only will that keep the public safer by providing early intervention, it will deflect offenders away from future offending as well. We set out in our sentencing White Paper an agenda of reform for not only punishing but, importantly, rehabilitating low-level offenders. We have set out a number of measures in this Bill as well: problem-solving courts, suspended sentence orders and extending the use of electronic monitoring. I believe that those measures will support offenders to change their lifestyles for good. In that, of course, I share the aims set out by the noble Lord, Lord Marks of Henley-on-Thames, and the noble and learned Lord, Lord Falconer of Thoroton.
Earl Attlee (Con)
My Lords, I am very grateful for the response of all noble Lords in this short debate. I would tease my noble friend the Minister and invite him at some stage to read a recent report to the Chief Inspector of Prisons that stimulated some of my thinking.
The noble Lord, Lord Marks, mentioned soft skills, which are extremely important. I know that anger management training is done within the prison system, but one thing I envisage is on exercises: the trainees have to practise anger management scenarios where they are faced with someone being stroppy and have to respond in the right way, and you can really only do that in an exercise outside the ghastly prison environment.
That takes me on to the point made by the noble and learned Lord, Lord Falconer, about isolation. The inside of a prison is absolutely ghastly. If you have youngsters who are already mentally fragile, having had a ghastly upbringing, which everyone in this Committee knows about, and then stick them in a conventional prison, it is the worst possible environment. That is why I am proposing that, to try to rebuild these youngsters, we need to do it in the beautiful countryside, not inside a ghastly prison. But I am extremely grateful for the response of the Committee and I beg leave to withdraw my amendment.
Baroness Butler-Sloss
“Rehabilitation of offenders who are addicted to drugs or alcohol
(1) Offenders who commit offences other than murder, manslaughter, terrorism or sexual offences, and who are addicted to drugs or alcohol, must be given a sentence with a requirement to attend a residential rehabilitation unit.(2) An offender who refuses to attend or fails to remain at the unit must serve the remainder of their sentence in prison.”
Baroness Butler-Sloss (CB)
My Lords, picking up on what the Minister said about rehabilitation, this is a probing amendment; I have no intention of taking it further. However, there are a very considerable number of people who arrived in prison with drink and drug addiction. All too many of them pick up addiction—perhaps not drink but drug addiction—in prison. The trouble is that, when they leave prison, they almost certainly will not have had very much, if any, help. There are a few systems—but very few—and they are almost certain to reoffend because, once you are addicted to drugs or to drink, you are going to reoffend because you need the money.
There is a cycle of offences by vulnerable people who have taken up drink and drugs who may be committing drug offences but are equally likely to be committing offences of burglary, theft and other similar crimes. So I am suggesting that the Government put in place at least one residential unit as a pilot project. I know Governments like pilot projects; the great problem is to get them beyond the pilot. In this case, I would like them to get to first base, to a pilot project where a drug or drink addict—generally a repeat offender—should be sent to that residential unit as a probation order, with a requirement to stay there. If they do not want to go or do not stay the course, of course they have a sentence of imprisonment and go back to prison.
It really might help a considerable number of people. With any luck, it might reduce some of the prison population. So, although the up-front cost of such a residential unit would no doubt be expensive, I suspect it would become cost-effective in the long term. I am not certain that this is really appropriate for primary legislation, but I have put it here to nudge the Government into trying to do something. I beg to move.
Baroness Brinton (LD) [V]
My Lords, I support the probing Amendment 242 from the noble and learned Baroness, Lady Butler-Sloss. As the Minister referred to “juvenile” earlier, I remind the Committee of his views on heavy drinking: that it can be either a civilising force or the bane of civilisation. In society today, particularly in those who offend, it might be the latter.
The Liberal Democrats have long believed that the best treatment for drug and alcohol addiction is to treat it as a health emergency for the individual and society. As the noble and learned Baroness, Lady Butler-Sloss, outlined, there are already interventions in prison for those with addictions, whether drug or alcohol. But many are talking therapies, many of which, as a result of the pandemic, remain on the phone or on Zoom, and it is certainly true that we are hearing that offenders are finding that less effective.
The noble and learned Baroness, Lady Butler-Sloss, is right: a custodial sentence is the right time to think about dedicating time and energy to a residential rehabilitation course, where there are no distractions or problems of cancellation or changes of prison where you cannot continue with the same course. The NHS Integrated Substance Misuse Treatment Service in Prisons in England report, published in 2018, says:
“The purpose of health care in prison, including care for drug and alcohol problems, is to provide an excellent, safe and effective service to all prisoners equivalent to that of the community—whether the aim is stabilisation, crisis intervention or recovery from dependence.”
The guiding principles are “Recovery”, “Reducing harm”, “Reducing deaths in custody” and “Reducing reoffending”.
Recovery is key, but the reality is that the numbers are not good. The last report from the Ministry of Justice Alcohol and Drug Treatment in Secure Settings: 2018 to 2019, shows that the current arrangements have mixed results. It reports that of 53,000
“adults in alcohol and drug treatment in prisons and secure settings”
in that year, around 65% started treatment and just under 60%
“left treatment in secure settings.”
The report says that only just over a quarter of those who were discharged after completing their sentence were free of dependence. The figures for young people receiving treatment, principally for alcohol and cannabis problems, are not dissimilar. Of those young people who left secure settings in 2018, under 30% completed their treatment successfully.
Continuity of care between treatment services is absolutely vital, and the proportion of adults successfully starting community treatment within three weeks of release was only a third. The intensity and focus of residential courses for people addicted to drugs and alcohol already has a higher success rate, and if attended near the start of their sentence could well mean that they have a real opportunity to learn to live with recovery.
Public Health England’s evidence review of drug treatment, published in 2015, says:
“The costs to society are significant. Latest estimates by the Home Office”,
in 2013,
“suggest that the cost of illicit drug use in the UK is £10.7bn”.
Of those costs, NHS costs are 1%, enforcement costs 10% and drug-related crime costs 54%. Public Health England’s review notes that, in all, around 50,000 people received drug treatment in prison in 2015-16. Nearly one-third had also received drug treatment in the community. The numbers are stuck. They are not improving.
The review makes two key points: waiting times to access a course and active steps taken to prevent a drop-out are significant in achieving a good outcome. This amendment proposes a mechanism that would not only prove beneficial to the offenders attending it, with a higher rate of success than the range of other interventions currently used, but would serve society and significantly reduce the costs of drug-fuelled crime.
Earl Attlee (Con)
My Lords, I had a very sheltered upbringing: I do not know where I could get any recreational drugs. If I went to a pub, I would probably find myself trying to buy recreational drugs from an undercover police officer. The one way I could certainly get some drugs is to get myself sent to prison on remand, because I could get drugs in a prison. I would like to hear from my noble friend the Minister what he is doing to stop drugs getting into prisons. It would be very helpful to understand how drugs get into prisons. Who is bringing them in? That is why my previous amendment referred to “remote” and “rural”, because it would be virtually impossible to import drugs into that establishment.
Lord Ponsonby of Shulbrede (Lab)
My Lords, we support this amendment from the noble and learned Baroness, Lady Butler-Sloss. As she said, there is a cycle of offences for vulnerable people with drink and drug problems. In many ways it forms the vast majority of cases that we see in magistrates’ courts. I have come from Westminster Magistrates’ Court today and I can assure her that I dealt with as many drug and alcohol cases as I usually do. To use the word of the noble Baroness, Lady Brinton, the numbers are stuck where they are. Things are not getting better.
The noble Baroness, Lady Brinton, gave a very full and insightful summary of the statistics. I have been a long-standing member of the drugs and alcohol all-party group. This is an intractable problem that we see throughout the criminal justice system.
The initiative from the noble and learned Baroness, Lady Butler-Sloss, is to have a residential rehabilitation unit at the start, essentially, of any potential custodial sentence, and if people dropped out, they would then get a custodial sentence. It might work and it may well be worth a try. I will make one comment—I hate doing this, because one of the consequences of being a magistrate is that one becomes a sceptic, but nevertheless I will say that I think drug therapies work better when people do them voluntarily. I often say to people when I release them on bail on a drugs offence, whatever the offence, “If you can engage voluntarily in drug rehabilitation”—very often those are the same services that they are statutorily required to go to—“then any sentencing court when you come back to be sentenced will look on it more favourably.” Sometimes that message gets home.
Despite that note of scepticism, I still support the noble and learned Baroness’s amendment. It is another approach. There needs to be a multitude of approaches to address this scourge, and this particular approach is worth a try.
Lord Wolfson of Tredegar (Con)
My Lords, this probing amendment from the noble and learned Baroness, Lady Butler-Sloss, would require the courts to impose a sentence with the requirement to attend a residential rehabilitation unit where the offender has a drug or alcohol addiction, unless they had been convicted of murder, manslaughter, a terrorism offence, or a sexual offence. So, we are dealing here with the position at sentence. I will come to my noble friend Lord Attlee’s point about drugs in prison, although that is a slightly different, albeit related, point from that raised by the amendment.
Baroness Butler-Sloss (CB)
My Lords, I thank those who have spoken in this short debate. I say to the Minister and the noble Lord, Lord Ponsonby, that I deliberately pitched this too high because I recognise that consent is an absolutely crucial part of any treatment. The nub is that I would like the Government to set up their own residential unit and make it an extremely important part of the sentence, so that the judge or the magistrate can say, “If you are prepared to agree to go to the government residential unit, where you will have to stay until you are told that you can leave, you will not go to prison, but if you do not agree then the sentence will be” whatever it may be. That is what I am looking for from the Government. At the moment, the Government are using everybody else’s residential units. They are expensive, infrequent and insufficient. If we are to crack what is going on, even to a small extent, with rehabilitation for those who are constantly in and out of prison suffering from drink and drug addiction, the Government must put some money up front, produce a residential unit and then say, “That should be a pilot project to see what the success rate is.” Having said that, I beg leave to withdraw my amendment.
Earl Attlee (Con)
My Lords, I oppose the Question that Clause 165 stand part of the Bill; I seek not to add but to remove something from the Bill. Section 9B of the Juries Act 1974 gives the judge the power to consider whether a disabled person can undertake their duties as a juror when there is doubt on the part of court officials. New Section 9C requires the judge to consider whether a British Sign Language interpreter would enable the juror to be effective. The rest of the clause is concerned with sensible, consequential provisions.
The Committee should note that the judge is involved only if there is doubt on the part of officials. A potential juror with an effective hearing aid would not go through the Section 9B process since there would be no doubt that they could be effective. I undertook jury duty many years ago, long before arriving at your Lordships’ House. It was indeed interesting to me, but I regarded it as a duty or an obligation. It is not a right or a privilege in addition to being a duty, as, for example, voting in a general election is. Therefore, I see no requirement to make these special provisions so far as a completely deaf juror is concerned.
I accept that many deaf people can also lip-read, which would no doubt supplement the assistance of a BSL interpreter. My concern is surely that many cases turn on the credibility of the witness and, sometimes, which witness is not telling the truth. Suppose in a case involving an expert witness, counsel is asking searching questions and makes a provocative suggestion. The expert witness might calmly respond, “No, that is not correct”, knowing full well that opposing counsel will return to the matter later. However, what the deaf juror inadvertently could pick up is, “No, that’s wrong”, which might appear to be the counsel having the witness on the ropes, when that is far from the facts.
A further difficulty might arise in the jury room when deliberating the verdict. I have been in the jury room. Discussion could be fast and furious, and I cannot see how the interpreter could possibly keep up. It would be possible to slow the proceedings down, which might be beneficial, but since we do not research how juries operate we cannot tell what the effect would be. The other jurors may simply ignore the deaf juror.
Finally, the clause also, quite properly, makes consequential provisions that put the interpreter under the same obligations of confidentiality as the other jurors. However, he or she is not a decision-maker and will still be in a different position, and we cannot know what, if any, chilling effect on discussions may arise from the interpreter’s presence. I expect noble Lords supporting me will come up with far better arguments than mine, but I oppose the Question that Clause 165 stand part of the Bill.
Lord Pannick (CB)
I have added my name to the noble Earl’s opposition to Clause 165. I understand that jury service is a civic duty and there are strong equality arguments that a deaf person should not be disqualified because they cannot proceed without an interpreter. I also understand that the judge has discretion over whether the nature of the issues in the case makes it appropriate for a sign language interpreter to retire with the jury, and that the clause makes it very clear that the interpreter will have a duty not to interfere in or influence the deliberations of the jury. I understand all that, but I have concerns about the consequences of allowing a 13th or 14th person to sit in the jury room. I say 13th and 14th, because there will be a need for at least two interpreters, as any one interpreter is going to struggle to perform this task for more than 30 minutes at a time.
The first set of concerns relates to the effects on the dynamics of the jury. A jury depends on effective communications between the 12 persons serving on it. To ensure that the interpreter performs their role effectively, he or she may need to intervene in the deliberations to prevent people from talking over each other; and the interpreter may need to ask people to repeat themselves or to clarify what they are saying. This will have an effect on the dynamics of the jury room. There is also the potential problem that what is said by the interpreter to the deaf person cannot be understood and monitored by the rest of the jury.
That was the first set of concerns. The second type of concern is that Clause 165 makes provision only for a subset of otherwise excluded members of a jury. We are not making any provision for potential jurors who have insufficient command of English to participate effectively, or persons who cannot read relevant documents because of a low level of literacy or poor eyesight. The clause also makes no provision for deaf or hearing-impaired people who do not use British Sign Language but instead use text communication systems. It is a bit odd to make provision only for deaf persons, and then only for a subset of deaf persons.
My third concern is that, as I understand from helpful discussions with the Minister, provisions similar to Clause 165 have been the subject of testing in other jurisdictions, but no modelling has been done with shadow juries in this country. The noble Earl mentioned that we cannot do research with real juries, but research is often done with shadow or model juries. I ask the Minister whether it would not be sensible, before such a significant change to jury trial is introduced in this country, to conduct some research with shadow or pretend juries to see how this is going to work.
Lord Judge (CB)
My Lords, I participate in this debate and support this amendment with personal reluctance. I think I am allowed to say this: my wife spent the whole of her professional working life treating children born with genetic or birth injuries. Her whole ambition was that that little boy or girl should be able to lead a full and complete life as a member of the community. Some of them did lead absolutely full lives, but some were too—to use the word that was used in the days when she was working—disabled to do so. I know from her experience how crucial it is that opportunities are available to people who have either been born with or acquired disabilities of this kind so, on a personal level, I am reluctant.
However, on a professional level, I must remember that I served as a barrister, doing many jury trials, then as a judge, also doing many jury trials. I have dealt with interpreters of language and interpreters for the deaf. I will not say much more than Mr Pannick—the noble Lord, Lord Pannick—did, but I do want to say one or two things.
First, this paper misses that one of the most crucial facts in what a jury must decide is an analysis of who is telling the truth. It is obvious in almost every case. May I draw noble Lords’ attention to a case I had to deal with? A man was charged with rape. There was a long record; it was just after tape recorders were introduced and before the police had learned to realise that you do not bully people into confessions. There on the tape recorder was a clear admission: “I admit I raped her.” The counsel for the defendant gets up and says, “I want the jury to hear the tape recording.” “Why?”, asked the judge—me. “Have you not checked that it is correct?” “Yes, I have, my Lord”, said the defence. “That is why I want the jury to hear the tape. I shall be submitting to the jury that, if they hear the tape, they will realise that the admission that is plain on the paper simply was not a true confession.” Of course, I agreed. The case unfolded and the tape recording was heard. I have no idea what the 12 members of the jury thought about it but, to me, it was perfectly obvious that, after he had been told about 23 times that he had in fact committed the rape, the man said, “All right, I admit it”, in a tone of complete resignation. His mind was not going with an admission; he was just fed up with the fact that the police had not listened to him.
Can we pause and think of that case in the context of the proposal here? What is to happen to a deaf juror who cannot hear the resignation in the admission? The interpreter cannot do it. They cannot say how it is said—for example, “I think that he was reluctant” or “I think that it is a true confession”. The interpreter cannot help the juror, or they become part of the jury. What happens then? What happens in that case is simply a more vivid example of what happens in just about every single criminal case: someone, as the noble Earl suggested, is lying. It may be the defendant. It may be the witness. Perhaps a kind way to put it is that somebody is badly mistaken, if it is a witness. However, the analysis of who is right and who is wrong is a long, drawn-out process in which the jury must see and hear the witness and observe any hesitations or changes of expression. There are all sorts of little clues about how to make the decision on credibility. With great respect, somebody interpreting using sign language is not going to be able to get across the tone in which the evidence is given. It is simply not possible.
I move to another point—the noble Lord, Lord Pannick, has made it already. Go with me into the jury room. I have seen jurors who are very cross and upset. You can tell that when they come back, because they are not agreed on their verdict and there they are: heated, anxious and worried. That is because every member of a jury, or virtually every member, I ever came across was determined to exert himself or herself to fulfil their public responsibility to reach a true verdict, so if they disagree about whether somebody is guilty, of course they are going to get steamed up. How will the dynamics work? Is it really being suggested that, within the jury room, the 12 of them should be together and that every time any one of the 11 who is not deaf makes a contribution, whether a comment, a long sentence or a paragraph, nobody can respond until such time as the interpretation has finished? I do not think that is real. I also think that, with the presence of interpreters—there will undoubtedly be at least two because half an hour of that work is extremely arduous—there will be at least 14 people. Go to any meeting that you are involved in and if somebody is there who is not actually involved, not responsible for what is going on, it changes the dynamic for all.
Let me leave the 13th or 14th person in the room and come to my fundamental objection. It will be the first time, as far as I am aware, when a jury room’s sanctity will be broken. We have always worked on the basis that what goes on in the jury room is private—not just confidential—to the 12 members of the jury. This is a very serious step for us to be taking. I can assure you that the next stage will be, as the noble Lord, Lord Pannick, suggested, “Well, somebody is not able to speak English but has a citizen’s obligation. He or she should serve on a jury with a language interpreter.” I can assure you too—and this is perhaps more urgent—that there will be a whole series of academic professors dying to get into the jury room to see how juries reach their verdicts. So far, we have resisted it—in England, at any rate. What will happen to the confidentiality and privacy of the jury system if we let this door open?
That seems a fundamental issue of principle; it is not a matter of practical possibilities—as things improve, as science and technology get better. We are setting a very serious precedent. Although, of course, we cannot imagine it ever happening, I cannot help feeling in my remote dreams that, one day, a Secretary of State for the Home Department may say, “Why are these people being acquitted? It is a very good thing for us to have somebody in the jury room just to make sure that they are following the judge’s directions to them.”
I have three further points to make. The first is the language point—I have made that. Secondly, what is the role of the deaf juror in the context of his or her obligations to do jury service? If somebody turns up at court who can use or understand sign language, will it be compulsory that he serves on a jury? Everybody else has to turn up; there has to be a very good reason—there is an obligation to act as a juryman. Do we say, “Well, in the case of the deaf person, there’s a special dispensation?” In which case they are not being treated like everybody else. We need to examine that, because I would have thought that there is many a deaf person who would be willing to serve on a jury, but there will be quite a lot who would not.
Finally, while we are examining the proposal made by the noble Lord, Lord Pannick, about possible shadow research, why are we not looking at the technology that is available? It is at least possible that my objection in principle could be addressed through technology. We all know that any time we turn on our television and some extraordinary language from the Baltic countries is being used, little lines come up to tell us what is being said. All members of the Bar with successful practices—and I never did have one—work in courts where all the evidence emerges on a screen as it is given. Why is that not being looked at? Why in relation to the principal issue are we not finding ways that a deaf juror can be accommodated within the jury room without any interpreters being present at all?
Lord Thomas of Gresford (LD)
My Lords, I ask the Committee to forgive me for using legal language. Some years ago, I had a case in Newport. It was a murder trial in which the victim was profoundly deaf, the defendant was profoundly deaf and four or five of the witnesses were profoundly deaf. This trial proceeded with three sign language interpreters always in the courtroom: one for the defendant, one for the witness and one behind the judge, positioned so that everybody, including the many profoundly deaf people in the public gallery, could see what was happening.
When I first looked at this provision, I thought, like everyone else would, that surely a person who is profoundly deaf should be entitled to carry out their public duty. But the practicalities of it make that an impossible idea. For a deaf juror, there has to be a succession of people interpreting what is going on in the court in sign language. First of all, that is an immense burden on him—he is different from everyone else; and, secondly, while what is said in the court can be heard by everyone else, we do not know whether the person doing the signing gets it right. Nobody can really tell if that is the case, unless, as in my case, you have someone familiar with sign language in the box with the defendant.
How can we be sure that that juror understands the nuances of a summing-up, in which the judge sets out the law that the jury is to apply? Can it be the case that some other person who knows sign language checks that the proper interpretation is being made of what may be very technical language? As I learned, the sign language interpreter is not translating word for word but is conveying ideas. During that case I also discovered that sign language interpreters and witnesses who give their evidence by signing are quicker than people using ordinary speech. It is not a slower procedure, rather it actually speeds things up; the rest of the court have to hold the sign language interpreters back.
However, in the jury room, there is no way in which a profoundly deaf person can follow the arguments being made—passionate and otherwise: nobody can be sure that every nuance of what the other jurors are saying is being transmitted, and nobody can be sure that an interruption or question from a profoundly deaf person is being accurately translated and represents his thoughts.
I take the argument of principle that the noble and learned Lord, Lord Judge, put forward, but from a practical point of view, and from my experience of that trial, it is impossible for a fair trial to take place.
Lord Hope of Craighead (CB)
My Lords, I do not think I can add very much to the points that have already been made on the difficulties which this proposal is likely to give rise to, except to say that one has to remember that hearings in criminal trials take a very long time. I do not know whether we, who have never had to be instructed in sign language, are able to tell whether a deaf juror can maintain concentration by that method throughout the entire day that the trial goes on, and indeed whether the interpreter can conduct that process throughout the entire day without relief. Maybe you would have to have another interpreter to come and take over after a reasonable interval, as you often had to do with shorthand writers in the days when they were used.
Lord Marks of Henley-on-Thames (LD)
My Lords, this is a very difficult issue and one on which I would normally expect to find myself on the side of assisting persons with a disability, for precisely the reasons given just now by the noble and learned Lord, Lord Hope of Craighead, but also by the noble and learned Lord, Lord Judge, at the beginning of his speech. That would be assisting persons with a disability such as deafness to take a full part in jury trials, even as members of a jury, so I completely share the reluctance of the noble and learned Lord, Lord Judge, in finding myself opposing the Government’s proposals and wishing to restrict the assistance proposed for people with the disability of deafness.
One has every respect for the fact that similar proposals were considered in Scotland in 2018, as explained by the noble and learned Lord, Lord Hope, but I have come to the conclusion that it is simply incompatible with a fair trial by jury for one or more of the jurors to be assisted by one or more sign language interpreter—it is an important point that it may take more than one to give coverage throughout a trial. It seems to me that the presence of an interpreter in the jury room would raise a number of questions that are simply impossible to answer in a way that is compatible with this new proposal. The questions may reflect some of the concerns that noble Lords and noble and learned Lords have expressed in this debate.
The first is: would the interpreter be bringing a personal view of the evidence and the discussions to bear on the juror concerned, for whom he or she was interpreting? The associated question is: how would we know that the interpreter was bringing that personal view to bear on the juror concerned? The next question is, in one sense, the converse of that: would the contribution of the juror concerned to the deliberations of the jury as a whole genuinely reflect the contribution which that juror would have made had the interpreter not been present? That, of course, affects not just the juror concerned but all the other members of the jury as well.
Then there is a third and very obvious point, made as a result of the speed with which jury deliberations necessarily take place and which reflects the points made by my noble friend Lord Thomas of Gresford: how accurate is the interpretation that is achieved in any particular case? Again, the second point that arises from that is: how is that accuracy to be monitored? How do we know how accurate the interpretation is? Of course, it is not just the interpretation of the contributions to the deliberations that that particular juror has to make, but also the interpretation to that juror of what all the other jurors who might agree or disagree with that juror’s point of view may be saying.
Also, how far would the contributions of other jurors be affected by any actual or perceived views of the interpreter? We come back to the questions raised by both the noble Lord, Lord Pannick, and the noble and learned Lord, Lord Judge, of the dynamics of the jury room. We all know from experience that people gathered together carry different degrees of forcefulness, persuasiveness and believability. It is almost impossible, it seems to me, to rule out forcefulness or persuasiveness on the part of the interpreter, as distinct from the part of the juror concerned.
So I agree with the noble Earl, Lord Attlee, on the principle and with other noble Lords who have spoken on the dynamics of the jury room. I also agree with the noble and learned Lord, Lord Judge, on the point he made about the centrality of privacy in the jury room. We have always believed and held to be cardinal that jury deliberations are private and nobody else should be involved. The noble and learned Lord took the Kafkaesque point that maybe the Government would ultimately want a representative in the jury room. Even if we do not go that far, the principle is there to protect the privacy of jurors. The presence of third parties—or 13th and 14th parties—weakens that. I also take the point that many potential jurors who are deaf may not wish to serve on a jury and may see the effect of their disability as something that cannot be overcome by recourse to an interpreter.
These difficult questions are recognised in Clause 165 by the proposed new Sections 9C(4) and 20I of the Juries Act 1974, which create a new offence of an interpreter intentionally interfering with or influencing the deliberation of the jury. For my part, I cannot see that those proposed provisions could ever provide a satisfactory answer to the problems. The difficulties come not from the risk of intentional interference or influence but from the actual effect of unintentional and unintended interference or influence by a forceful interpreter, or a jury that did not follow what the interpretation was affecting.
Our system depends on the interaction between the views of 12 independent jurors, who have all listened to and considered the same evidence in the same way during the course of the trial. Each and every one of those jurors will have weighed up the truthfulness and accuracy of the evidence given by witnesses giving oral testimony and will have been influenced, partly at least, by the way in which that testimony was delivered. They will have formed their own views of that before they ever get to the jury room.
In this context, Section 10 of the Juries Act requires the discharge of potential jurors with insufficient understanding of English to enable them to act effectively as jurors. They need that understanding in order to interact with and understand the meaning, force, style and believability of the evidence, as they must. As the noble Lord, Lord Pannick, pointed out, no foreign language interpreters are permitted, for obvious and good reasons, and I am entirely unpersuaded that the interests of justice would be best served by permitting interpreters of any language, including sign language, to accompany jurors into the jury room.
Lord Ponsonby of Shulbrede (Lab)
My Lords, there have been some very strong speeches from some very eminent lawyers, talking about the underlying principles of the jury room. Set against that, as the noble Lord, Lord Pannick, said, there are very strong equality arguments in favour of the proposal by the Government.
I served on a jury many years ago, but I want to talk about my experience as a magistrate. Magistrates are both judge and jury. About two years ago, the Greater London Family Panel of magistrates recruited a deaf magistrate. As far as I know, she has been sitting successfully for the last two years. I am in a position to know because I am currently chairman of the Greater London Family Panel and would be told if there were any complaints or observations related to the way she was performing. I have not heard any and, as far as I know, it is absolutely fine. She sits with a regular interpreter, who is familiar to her, and with the other magistrates when they are determining these very sensitive issues.
Earl Attlee (Con)
I would like to quickly pick up on one thing the noble and learned Lord, Lord Hope, touched on, which was the position of a blind juror. I would have no problem at all with a blind juror. I expect that there are blind jurors and that the current legislation in Section 9B already provides for that without any difficulty.
Lord Wolfson of Tredegar (Con)
My Lords, this was an especially thoughtful and constructive debate. I agree with the words that the noble Lord, Lord Ponsonby of Shulbrede, used to describe the debate. His reference to the magistrate was interesting, but the problem with all analogies is that they are different. I am going to focus specifically on the jury issue because I recognise that a number of Members of the Committee have made particular points about jurors.
I will start with the point made by the noble and learned Lord, Lord Hope of Craighead, who referred us to the Equality Act; that is an important starting point for the debate, although it may not be the finishing point. We must ensure that the services of the courts are accessible to everyone, including those with disabilities. We must pay due regard to the need to eliminate discrimination and advance equality of opportunity wherever possible. That, in a nutshell, is why Clause 165 is part of the Bill. Having said that, and because I know that this will be a debate that is looked at by those outside this House as well as by those inside it, let me place on record what need not be said but I am going to say it anyway: that everybody in this Committee shares that aim. We heard a very personal example from the noble and learned Lord, Lord Judge, of Lady Judge’s work in this area. Again I say this for the avoidance of doubt where there should not be any: I am proceeding on the basis that all who have questioned or opposed our proposals do so with the very best of motives and certainly not for any other reason.
Trial by jury is a fundamental aspect of our criminal justice system, and serving as a juror is one of the most important civic duties that anyone can be asked to perform. I agree with my noble friend Lord Attlee that it is a duty and not a right, but the Government and I want to ensure that as many people as possibly can perform that duty. Reasonable adjustments can be made by our courts to enable most people with disabilities to complete jury service. This, importantly, includes deaf jurors who can lip-read. I invite the Committee to reflect very carefully on the position of the deaf juror who can lip-read and to consider it in respect of each of the objections that have been put. I will come to some of them to which this would not apply, but a number of the objections would potentially apply to a juror who is deaf but who can lip-read. Nobody else in the court is likely to know how good the lip-reading is, whether the lip-reader gets every nuance, or how lip-reading affects the dynamics either in the jury box or in the jury retirement room.
That is the first point we get from the deaf juror who lip-reads, but there is another point as well: it underlines the proposition that there is no bar in principle to a deaf person serving on a jury. This is about one issue only, which is the 13th—I will come back to the 14th—person in the jury retirement room. That is why we need the legislation, because at the moment it is 12 and no more; I put the jury bailiff to one side. The issue at the moment is that, unlike a lip-reader who, if the judge considers that they can effectively discharge their duties as a juror—which I will come back to—can serve on a jury, a juror who needs a British Sign Language interpreter is unable to get that assistance because entry to the deliberation room is limited to the jurors, and no one else may enter. The essential point that this clause focuses on is permitting the BSL interpreter to go in, thereby enabling that juror to fulfil their duty.
I recognise that there have been what I might call practical, and almost philosophical, principled objections and concerns raised about the proposal. I note that the Bar Council of England and Wales has expressed its support, subject, it is fair to say, to the right safeguards, which I believe we have in place. I reassure the Committee that we considered the safeguards very carefully in developing the legislation. We looked at research and current practice in the USA, New Zealand, the Republic of Ireland—which is planning to legislate for this form of interpretation—and Australia, where provision is already made for BSL interpreters or the equivalent in its jury systems.
I will first deal with the philosophical or principled objections. I understand the reservations that this might undermine the jury deliberation process, and I understand the argument, although I do not accept it, that interpreters could unduly influence or impact the dynamic of the discussions. There has been a lot of research, particularly in New South Wales, to explore whether deaf people can sufficiently access court proceedings and make informed decisions as jurors. The research suggests that deaf jurors are not hindered from speaking during deliberations and that other jurors seemingly have no issue with the presence of the interpreter or interacting with the deaf juror.
We have put safeguards in the Bill to help to address these issues. Offences relating to research and sharing research during the trial will apply as much to the interpreter as they do to the jurors. As has been pointed out, there is a new offence whereby an interpreter intentionally interferes in or influences the deliberations of the jury or proceedings before the court. I have said “interpreter”, but I accept, as the noble Lord, Lord Pannick, pointed out—I acknowledge my gratitude to him and others for sparing time to discuss this with me—that there will be two BSL interpreters present in the jury deliberation room, not only because they need to switch over as it is a very intensive process for the interpreter but because it has the benefit that they will be able to monitor each other and maintain a consistently high quality of interpretation. To take the point of the noble Lord, Lord Thomas of Gresford, I say that the nuances will be as much picked up by the sign language interpreters as we can anticipate—or not—that they will be picked up necessarily by a lip-reader.
I agree with the noble and learned Lord, Lord Judge, that the jury room is not just confidential but also private; those things are different, and it is both. There is no intention to allow the academics or the researchers in. There is certainly no intention to move from what I think in the judicial review context is called “the judge over your shoulder” to the Minister standing over the juror’s shoulder. We are certainly not going there.
The interpreters will be bound by a confidentiality agreement and be bound by law, and there is an offence to keep everybody honest. They will also be required to swear an oath or affirmation to that effect, alongside their existing interpreter’s oath or affirmation.
I turn to the practical concerns around the nature of evidence and whether a deaf juror will be able to interpret facial expressions, together with audio evidence, effectively. Again, I heard the example from the noble and learned Lord as to how something was said in a tone of complete resignation. The word used in the Act, and in this clause, is “effectively”. The judge would have to decide whether the juror could effectively discharge their role as a juror. This provision does not require judges to admit such jurors on to the jury; it simply removes the blanket ban that would otherwise be present. It means that jurors who need a BSL interpreter can be considered alongside other jurors for whom other reasonable adjustments might be required.
The ultimate decision will be for the trial judge, who will take into account the nature of the case and the nature of the evidence that is going to be heard. No doubt he or she would want to hear submissions from the parties, although they would not be bound by them. As I have said, none of this is new. Again, I ask the Committee to consider how the trial judge should deal with a juror who says, “Well, I lip-read.” The trial judge, again, would have to consider what the evidence in the case was going to be and whether they were going to be able to fulfil their role effectively. There is no difference in principle, and the test and approach of the judge would have to be the same.
I accept that there will be cases where a deaf person would not be able to serve on a jury. I expect that there will be cases where a lip-reading juror might not be able to serve on a jury—for example, if the evidence is audio only and there is nobody to look at; there is just a telephone call playing.
Lord Pannick (CB)
I ask this question out of ignorance. Can the Minister confirm what the noble Lord, Lord Thomas of Gresford, said, which is that a BSL interpreter does not interpret in the way that a foreign-language interpreter would, but rather attempts to summarise the gist or essence of what has been said?
Lord Wolfson of Tredegar (Con)
I was going to come to that point, but let me deal with it now. BSL is treated as a language. It has its own grammatical structure and syntax; it is recognised as a minority language in the UK. There is not a sign for every word, but words can be spelled out where a sign is not possible. The noble Lord and I have both had cases where we have had simultaneous foreign language interpretation. It is also the case that not every word in every language is easily translatable into another language. Certainly, we have looked at that point, and we do not think that that should be a bar to a deaf juror effectively participating in a jury. For these purposes, BSL is sufficient to enable the juror to participate effectively, but depending again on the nature of the case, that may be a factor in a particular case which the judge would want to take into account.
It is important to start from the proposition that everyone should be able to serve as a juror unless there are good reasons to believe that they would be unable to do so effectively. I underline that word “effectively” in the instant case. I come back to the fact that deaf jurors who can lip-read serve successfully, and we do not believe that there is a reason why there should be a blanket ban on jurors who need BSL interpreters to serve.
Picking up some other points, the noble and learned Lord, Lord Judge, asked about the obligation point and whether there would be a special dispensation. No, there would not be a special dispensation. Like any other juror, the deaf juror who needed a BSL interpreter would have to ask for permission to be excused. Of course, given that the judge would also be considering whether they could effectively participate, perhaps the anterior question would be their effective participation, and then the question would arise as to whether they could be excused. That would also apply, of course, to any other juror who was a lip-reader. One would imagine that a judge would be sympathetic to a lip-reading juror who might say to the judge, “I know that I can serve, but I am very concerned that I might miss something. My lip-reading is good, if not 100%, but I would rather not serve.” Ultimately, however, that would be up to the judge. There would not be a special dispensation.
Earl Attlee (Con)
My Lords, first I pay tribute to my noble friend for his response to our concerns. When I read the Bill, as all noble Lords do, I read it carefully and this clause immediately attracted my attention, because I thought it would be of interest to your Lordships. I think the best course of action is to incorporate this clause into the Bill and then recognise that this matter is far beyond my pay grade and we should perhaps leave it to other noble and learned Lords to pursue it at a later stage if they think it is necessary. I think we should put the question.
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Lord Wolfson of Tredegar (Con)
My Lords, these amendments in my name make two straightforward revisions which will allow these provisions to operate more effectively and support the principle of open justice across our courts and tribunals. Let me divide them into two groups.
Amendments 243, 244, 245, 248 to 261 inclusive and 325 expand the scope of Clauses 167 and 168 so they apply to all of our courts, tribunals and all bodies that exercise the judicial power of the state, with the exception of the Supreme Court, for which there has already been separate provision, and devolved courts and tribunals, for obvious reasons. This is an important amendment. It ensures that all jurisdictions may use these powers to provide transmissions of proceedings to remote observers in order to uphold the principle of open justice, subject, of course, to further regulation, guidance and judicial discretion.
Digital technologies have become mainstream, even in our smaller and what might be called more obscure jurisdictions. It is now evident that these powers should not be limited to HMCTS courts and tribunals but would be best made effective in all courts and tribunals. Importantly, that also ensures that the offence of making unauthorised recordings or transmissions of proceedings is applied universally across our entire justice system and not just in specific jurisdictions. This will shorten the length of the Bill by around six pages by removing the need for a distinct schedule for tribunals. I was going to add, “making this legislation simpler”, but that might test the patience of the Committee.
Ensuring that our courts and tribunals are as open and transparent as they can be is an ongoing task. The president of the Family Division, Sir Andrew McFarlane, recently published his review of transparency in the family courts. With respect to the president, it is right to say that that was a phenomenal piece of work, which has been well received. The remote observer clauses in this Bill are in harmony with his recommendations, as the Bill allows transparency by permitting journalists to observe family hearings remotely if they cannot attend in person.
The second part of this group of amendments, Amendments 246, 247, 262, 324, and 329, provide technical amendments so that the secondary legislation to enable these powers may be introduced on time. Let me explain what I mean by that. The remote observation provisions in the Bill are intended to replace the temporary and less extensive powers in the Coronavirus Act. They have been vital in allowing our courts to administer justice effectively and transparently during the Covid-19 pandemic.
We want to make sure that there is no gap in the legislative cover. It has therefore become necessary to ensure that these new powers can be enabled in secondary legislation before the date that the existing legislation expires. With this Bill now not expected to receive Royal Assent until only shortly before that date, these amendments take the necessary step of allowing the enabling secondary legislation for these powers to be introduced by the made affirmative procedure. These amendments therefore provide that legislation is continually in place to uphold open justice in remote hearings.
As this morning, I am aware that the group contains amendments from other noble Lords, so I will pause there to allow them to introduce their amendments. I beg to move.
Lord Pannick (CB)
I shall speak to Amendment 259B in my name and those of the noble Lord, Lord Marks, and the noble and learned lord, Lord Judge.
Clause 169(2) would allow a jury to be in a different physical location from the judge, so long as all 12 members of the jury are in the same place as between themselves. I am very concerned about this proposed power. In order to ensure the effective management of a criminal trial, a judge needs to be in the same room as a jury. The judge needs to be able to communicate effectively with the members of the jury. The judge needs carefully to watch the jury to see that they are focused and ensure that their needs are addressed. The judge needs carefully to watch the relationships between the 12 members of the jury. The jury needs to be able to communicate speedily and easily with the judge if it has any particular issue that it wants to raise. Members of the jury need to be able to study the witnesses giving evidence—what they say, what they do not say, and their body language and facial expressions while doing so. All this is so much more difficult through a computer screen, as we have all discovered, whether through court proceedings or parliamentary proceedings, during the pandemic.
I have had very helpful discussions with the Minister about this matter, and I am very grateful to him and thank him for those discussions and the time that he has devoted to them. I understand from him that the Government have no plan to encourage the use of remote juries. Instead, as I understand it, the Government believe that this would be a useful power essentially for three reasons: we may be afflicted by another pandemic; there may well be advances in technology; and, in any event, this power may be useful today if a judge and lawyers, for example, go on a site visit and one or more members of the jury is physically disabled, in which case the site visit can be watched by the whole jury online. That is the example that the Minister gave me.
I have to say that I find these justifications unpersuasive. I am always suspicious of broad powers being taken in legislation “just in case”. I certainly do not doubt the Minister’s good faith, but his assurances as to what is intended to be done under this proposed power do not bind—cannot bind—his successors in office to what he has done; they may have very different proposals or intentions as to the use of these powers. With great respect, the site visit example is, I think, very far-fetched. I am not aware of any such problem in any case in recent years, if ever.
In any event, if Ministers think that provision should be made for such a limited, specific use of remote hearings, with juries in a different place to the judge and the defendant, let it be made clear in the drafting of the clause that a remote hearing cannot take place with the jury in splendid isolation from the judge, the witnesses and the defendant in relation to the hearing of oral evidence, the submissions of counsel or the summing-up by the judge.
Although they have not yet been spoken to, I express my support for Amendments 259A and 259B, both of which concern aspects of the proposed power to be conferred on the court to require a person, including a defendant, to take part in proceedings by audio or video link. I can well understand that this may be a useful power for a preliminary hearing, but not for a substantive trial, unless the defendant consents to that. I am very unhappy about this in relation to young persons.
There are real issues as to whether a defendant would have effective access to a hearing, were his or her presence to be remote, and real concerns as to whether they could effectively communicate with their legal representatives. The Ministry of Justice may be hoping to save some money if it does not need to transport defendants from prison to court, but I am doubtful that it will save much money because it will need to invest in very high-quality computer systems. In any event, I fear the price will be a reduction in the quality of justice, and that price is too high.
Lord Hope of Craighead (CB)
My Lords, I do not wish to be taken as suggesting that what works well in Scotland should necessarily be applied in England and Wales, but I think I am right in saying that there has been some attempt in Scotland to allow juries to be remote. The problem one has is that a judge cannot be in two places at once. I think it was thought more appropriate that the judge should be close to the place where the evidence was being taken, with the juries remote in some other room because of the need for social distancing and so on. My point is simply this: I suggest once again, with great respect, that the Minister should find out what has been happening in Scotland and what the experience has been. They may have decided, for the reasons given by the noble Lord, Lord Pannick, that it should not be continued. I simply do not know, but it is worth exploring to find out exactly what the position is.
Lord Judge (CB)
My Lords, despite Covid—I know it is not over yet, but despite the 18 months we have had—I have not heard it suggested that one solution to the problems that the courts face is that juries should act remotely. We have trial by judge and jury. I agree with what the noble Lord, Lord Pannick, said, but I want to be just a bit more down to the realities of it. What happens in court when the jury is unhappy with itself or with some of its members? The judge has a most delicate task to perform. On my old circuit—I am sorry to say that the Midlands circuit has this—one juror smelled; he stank, and the jury were extremely unhappy about it. Can all that be done remotely, when the judge is responsible for looking after the interests and needs of the jury as a whole? Do we send messages down the line? How is it accommodated? It requires huge tact, skill and, I think, the personal touch.
My other concern about this provision was touched on by the noble Lord, Lord Pannick—it is the usual one, I am afraid; you have all heard me talk about it. Why should we give these huge powers when we do not need to give them?
Lord Ponsonby of Shulbrede (Lab)
My Lords, there are a number of amendments in this group to which I would like to speak. The noble Lord, Lord Pannick, made the overarching point that he is suspicious of broad powers being taken in legislation. It seems to me that those amendments which are not the Government’s address the broad powers which the Government are seeking to take in this group.
Amendments 245A and 245B, in the name of my noble and learned friend Lord Falconer and supported by the noble Lord, Lord Pannick, would remove children from the application of Clause 167, providing that remote observation and recording of court proceedings may not occur in cases where a party to the proceedings is a child under the age of 18.
Under Amendment 259A, also in the name of my noble and learned friend, a court may not give directions for live links in criminal proceedings where a party to them is a child under the age of 18. The amendment in my name, Amendment 259BA, would require that all defendants who might appear on a video or audio link from a location outside the court should be subject to a health needs screening. Screening information must be made available to the judge responsible for listing before the listing is finalised.
We have all had a variety of experiences of dealing with remote links. I have done it many times over the last 18 months and in a number of jurisdictions. I was pleased that the Minister referred to Sir Andrew McFarlane’s report about trying to increase the transparency of family courts. I have read that report and it is interesting. There is the idea there of permitting journalists to observe family courts remotely. However, there is another side to this coin. Yes, we pat ourselves on the back for getting through a difficult situation—I have done it myself—and we have all managed to make the various parts of our lives work, including this House, but I do not think that anyone would say that the manner of getting through things within the court system or within this House or this Committee is as good as doing it in person.
The amendments I have spoken to look at arguably the most vulnerable people who potentially proceed through the criminal system and at whether there should be a form of review around whether that is indeed suitable. The amendments I have referred to talk about people under the age of 18, but there is a wider point, because there has been criticism of the way in which we in the family court system have proceeded remotely. I have literally taken away a child from a mother remotely, by telephone. It was the best thing to do in the circumstances, but nobody would argue that that was the best way to proceed when the court system and other forms of support should be in place and available.
There are overarching and broad powers being sought through this group of amendments. The amendments in my name and those in the names of the noble Lord, Lord Pannick, and the noble and learned Lord, Lord Falconer, are basically looking for exceptions to this, where the situation is so sensitive that these overarching powers should not be taken and there should be further research and assessment of their appropriateness. The amendments in my name deal with young people under the age of 18. I have had a number of hearings with such young people. Sometimes they go okay; sometimes they simply switch off and do not have a clue what is proceeding within the court system.
I hope that, when the noble Lord comes to sum up, he will be able to say something about ongoing reviews of particular appraisals of young people being able to participate in these types of hearings, and that there will not be a blanket approach, as is proposed in his group of amendments.
Lord Marks of Henley-on-Thames (LD)
My Lords, I am sorry to speak after the noble Lord, Lord Ponsonby. I wanted to hear what he had to say about his amendments and those in the name of the noble and learned Lord, Lord Falconer.
I speak first to the amendment to which I have put my name, Amendment 259B—on which I entirely agree with what the noble Lord, Lord Pannick, and the noble and learned Lord, Lord Judge, said—about excluding jurors from the operation of the provision permitting participation in criminal proceedings by remote live links.
The proposal in the Bill is that the problem of jurors taking part in criminal proceedings by live link should be dealt with by a requirement that all members of a jury taking part through a live link should be present at the same place. So the suggestion is that, by being present at the same place, the jurors would be able to decide a case whether or not they were physically present at the trial. I do not believe that suggestion is accurate or that it responds adequately to the difficulties posed by the proposal that jurors should be able to attend remotely.
In the last group we considered how important it is for jurors to be able to see and hear witnesses giving their oral testimony live, with a view to assessing the truthfulness of those witnesses and the accuracy of the evidence they give. That involves a very personal judgment about credibility and reliability. Reliance upon that judgment—the independent judgment of 12 citizens, as distinct from the individual judgment of a professional judge—is what marks out the jury system. I believe it is what has given the public confidence in the system that we all have. I do not believe that that judgment is capable of being reliably made by live link.
Post Covid, we can all see the attractions of remote hearings. As a barrister, I have appeared in many such hearings over this period, as I dare say others have—certainly the noble Lord, Lord Pannick, has. For hearings before judges alone, or before arbitral tribunals, they generally work well. Indeed, for many civil hearings, I suspect we will not go back to the system of all-oral hearings for a significant percentage of our work. That will be a matter for individual judges, arbitrators and lawyers, depending upon the particular circumstances of the cases before them.
However—this was the case that the noble and learned Lord, Lord Judge, made—even during the pandemic and despite the pressures of increasing trial backlogs, we have not gone down the road of holding jury trials without jurors being physically present to hear the evidence and being in the same place as the judge. In my view, that is for good reason, so I invite the Government to think again and to accept Amendment 259B.
On the other amendments, having heard the noble Lord, Lord Ponsonby, explain his amendment about the need for health-needs screening, I agree with the noble Lord and invite the Government to accept that, too. As for the amendment in the name of the noble and learned Lord, Lord Falconer of Thornton, I fully accept the argument that it would be unusual for the use of live links to be directed by a judge in a sensitive case involving children, but I can see an argument that some such cases might justify a direction. I see no reason not to leave it to the judge in any particular case to determine whether the use of live links would further or impede the interests of justice. In this regard, we need to remember that refusing a live-links direction may in many cases cause delay in the determination of those cases, and that such delay may lead to particular injustice in cases involving children, for whom an early determination of the issues surrounding their care is often of great importance. So, although I see the point of this amendment, I suggest that it is better to leave it to judicial discretion in cases involving children.
Lord Deben (Con)
My Lords, the Committee will know that, as a non-lawyer, I very often attend these debates because I do not trust lawyers to make decisions about themselves. I therefore intervene here because, on this occasion, lawyers have brought to the surface a most important issue.
I am interested in whether people believe that justice has been done, and it seems to me that extending, in these circumstances, the use of technology to overcome the presence of people in court has a fundamental issue for the generality of the public believing that justice has been done. I am a great believer in Zoom and Teams. They have made my life a great deal better and I have spent more time in the beautiful countryside of Suffolk than I had been able to do before, but I am very conscious of the fact that there are many things that you can do perfectly well—indeed, better—through these techniques and there are some things that you cannot. One of the things you cannot do is replicate the public’s confidence in the concept of a jury. The point, which was made by the previous speaker so adequately, is that it is different, and our system is different because we have this element.
I cannot believe that there are circumstances when it would be sensible for the jury to be in one place and the judge in another. Therefore, I wish to say to my noble friend, whose explanations throughout today and previous days have been remarkable—he has been able to defend some very peculiar things more effectively than most people have managed to do, certainly in the other House—simply this: we have here a position in which it is hugely important that the public should feel that justice is done. I do not believe they will if we do it this way.
As somebody who was a Minister for 16 years, I warn him that I see the civil servant here, who said to some Minister somewhere, “Better do this in case”. Some of the cases proposed are frankly incomprehensible, unlikely and totally beyond any sense—but it is the duty of civil servants to say, “Better not leave this out, Minister, lest it should happen and then we’d be in trouble”. I suggest to my noble friend that he would be in less trouble by not doing some of these things than he would be in the extreme possibility that he might need this power.
Lord Hope of Craighead (CB)
My Lords, there is a great deal to be said for the need for justice to be done, as the noble Lord has been saying, but there is another side to the coin, which is a trial within a reasonable time. That factor has been exercising the minds of those who have been trying to progress trials through the desperately difficult situation created by the Covid epidemic. I hope those times have passed but, in the defence of those who have been setting out remote proceedings, they have been doing so under great pressure. People have been languishing in custody for far longer than they should have been, awaiting trial, and that factor has to be taken into account in deciding what is the right thing to do. The noble Lord is absolutely right, of course, that the worst option is the one they were driven to—but they were driven to it for very good reasons.
Lord Wolfson of Tredegar (Con)
My Lords, I am grateful again to the Committee for a very interesting and wide-ranging debate. I thank my noble friend Lord Deben for the most back-handed compliment I have ever received and assure him that, when it comes to justice, I absolutely subscribe to the proposition that justice must be not only done but seen to be done. That reminds me to underline what Clauses 167 and 168 are about: they are about justice being seen to be done. These clauses do not mandate remote hearings; that is for a judge to decide. What they do is permit remote observation of those hearings, which underpins open justice.
When we look at issues such as this, we need to bear in mind that the days when the local newspaper would send people to sit at the back of the Crown Court or magistrates’ court are long gone. In the real world, you will have greater transparency if you have a live feed to journalists from the courtroom than if you say, “You’ve got to come along and take a note”. They simply do not any more, and I am concerned with making sure that we actually have open justice and that it is not just something we talk about.
Amendments 245A and 245B seek to prohibit those transmissions being made to remote observers in all cases where a child is among the parties. Amendment 259A similarly seeks to remove children from the application of Clause 169, which is about video and audio links in criminal proceedings. It would prevent the court, as a blanket ban, from making a direction to enable any participant in a hearing to attend by live link where a child is party to proceedings.
I absolutely agree with the intention of safeguarding children in our courts. We have debated that point in a number of areas of this and other Bills, but I suggest that these amendments are both ineffective and unnecessary. They are unnecessary because we already have in place sufficient tried and tested legislation and guidance to safeguard the privacy of children in these proceedings. Section 47(2) of the Children and Young Persons Act 1933 prevents anyone being present at a youth court hearing except members of the court, parties and participants, accredited media representatives or specifically authorised persons.
In other courts, procedure rules provide that it is legitimate to hold a hearing in private
“to protect the interests of any child or protected party”.
Courts have a statutory duty to have regard to the welfare of children. Judges, magistrates and tribunal members retain judicial discretion over whether a case is to be heard in private, with full consideration of their duty to protect minors or other vulnerable parties, where necessary. The ineffective or counterproductive point is that there may be cases where it is beneficial for a child, whether as a witness or a defendant, to participate by live link. If one is focusing on cases where children can be affected, one also has to bear in mind that there are lots of cases which affect children where a child is neither a party, nor a witness, nor physically involved at all.
Clause 169, as drafted, gives courts the flexibility to make decisions to direct remote participation where it is considered in the best interests of child participants to do so. I draw the Committee’s attention to the word “may” in the first line of subsection (1) in new Section 51. It is vitally important that we continue to protect children. That is why we have built these safeguards into our provisions.
Amendment 259B, which I think the noble Lord, Lord Pannick, spoke to first, seeks to exclude juries from the provisions in Clause 169 that enable a jury assembled together to participate in a trial through a live video link, where appropriate and deemed to be in the interests of justice. The Committee is entitled to a clear statement from the Dispatch Box and I will make one: there is absolutely no intention for this to become a regular feature of trials, with the jury sitting in one room and the judge and the witnesses in another room. As the noble and learned Lord, Lord Hope of Craighead, reminded us, Scotland did put that provision in during the pandemic—I think cinemas were used, so that everything was on a big screen and the audio was very good. That was done in response to the pandemic, and this measure is a future-proofing measure.
I hear what my noble friend Lord Deben says about that and about civil servants tapping Ministers on the shoulder, but, since the pandemic, we have witnessed big changes in how we run our jury system. We have seen —and here I pay my respects again to judges and all others involved in the justice system, who have worked extremely hard to do this—suitable procedures put in place. But we have also seen how legislation tied our hands during an emergency and impeded our ability to progress quickly and make full use of the technological options open to us. We do not want that to happen again. Clause 169 is designed to provide courts with the flexibility to keep pace with new technology as it develops.
As the noble Lord, Lord Pannick, said, that is the second reason for this clause. Technology is developing in ways that we could not have imagined a few years ago, and we have no idea where it will take us in the future. We want to be sure that we have a statutory basis to take advantage of technology as it develops, so that we can provide a justice system that is fit for the century that we live in and for the way that people live their lives. Those are the two main justifications for Clause 169.
I gave the noble Lord the example of a site visit. Again, I make clear that this is not the main justification for it, but it is important if one has a jury with a disabled person on it. The idea is shocking that, in 2021 a disabled person could be told that they cannot sit on a jury because, at some point during the three-week trial, it will look at the locus in quo, which is a room at the top of a winding staircase, and they cannot climb the stairs. The whole thing could be done very effectively via video, and so that is not a reason to stop them serving on a jury.
Lord Pannick (CB)
I am grateful to the Minister. Can he say whether there has ever been such a case?
While I am on my feet, I have another question. The Minister mentioned that technology may develop. I think the concern from those of us who have doubts about this proposal is not advancing technology but human communication. However good the technology becomes, there is still a vital distinction between watching proceedings on a screen and being in the same room as other people. I suggest to the Minister—this is certainly my experience and, I think, the experience of most lawyers and judges—that, although the courts have worked wonders during the pandemic, they have recognised the inferiority of any system that is within our contemplation by means of technology compared with being the same room. The ability to communicate and have an interchange with other people is manifestly weakened by having to do it over a screen.
Lord Wolfson of Tredegar (Con)
Absolutely. I do not disagree that face to face is better; no doubt that is what we all feel in this Committee—that it operates much better when we are in the same room than it did when it was all on screens. I absolutely accept that. Let me give an example. Before I became a Minister, I did a three-week trial entirely on screen, with witnesses around the world. After about a day, you forget, and you get used to the new system.
I am not saying that we want this clause here because screens are better; we want this clause in the Bill because screens may be necessary if we have another pandemic and because we do not know where technology is going to go. I do not want to get too techy about it, but there is a very real difference between watching a screen in the sense of a computer monitor and some of the things that I have seen in banks, where there is a big screen down the middle of a table and six or seven of you sit in a row and look at it, while the people you are talking to have the same thing in their office. After about half an hour, you really feel that they are on the opposite side of the table to you. Again, I am not suggesting that that is suitable for courts, but it is an example of how technology can, and will, develop. We want to future-proof it, as I have said.
Amendment 259BA would require anyone taking part in any sort of criminal hearing via live link to submit to a prior assessment of their physical and mental health before the court could consider whether it is appropriate for them to take part in criminal proceedings over a live link. I share the concern of the noble Lord that we must ensure that audio and video links are used appropriately. Again, we have built safeguards into Clause 169, setting out procedures and guidance that courts must follow. The court must decide whether it is in the interests of justice; that includes taking the views of the person who would attend by live link on whether they can participate effectively in the proceedings. The clause also requires that the parties have an opportunity to make representations to the judge.
I also point out that, although the intention behind the amendment is understandable, perhaps even laudable, in practice, it could prevent or deter some people from using a facility that could help them to participate in hearings with as little distress, inconvenience and delay as possible. I therefore urge noble Lords not to press their amendments.
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
The Deputy Chairman of Committees (Baroness Fookes) (Con)
In calling Amendment 245, I must point out that, if it is accepted, I cannot call Amendment 245A by reason of pre-emption.
Amendment 245
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment expands new section 85A of the Courts Act 2003 so as to cover all “courts” within the meaning of the Contempt of Court Act 1981 (which include tribunals and other judicial bodies).
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 188, line 25.
“(8A) Before making regulations under subsection (8), the Lord Chancellor must determine whether the function of giving or withholding concurrence to the regulations would most appropriately be exercised by—(a) the Lord Chief Justice of England and Wales,(b) the Senior President of Tribunals, or(c) both of them.(8B) Regulations under subsection (8) may be made only with the concurrence of the Lord Chief Justice of England and Wales, the Senior President of Tribunals, or both of them, as determined under subsection (8A).”Member’s explanatory statement
This amendment responds to the inclusion of tribunals within new section 85A of the Courts Act 2003 (see the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17) by providing for the Senior President of Tribunals to consent to regulations under that section in appropriate cases.
“(10) This section does not apply to proceedings in the Supreme Court.(11) This section does not apply to proceedings if provision regulating the procedure to be followed in those proceedings could be made by—(a) an Act of the Scottish Parliament,(b) an Act of Senedd Cymru (including one passed with the consent of a Minister of the Crown within the meaning of section 158(1) of the Government of Wales Act 2006), or(c) an Act of the Northern Ireland Assembly passed without the consent of the Secretary of State.” Member’s explanatory statement
This amendment provides that Supreme Court proceedings and court or tribunal proceedings within devolved competence do not fall within the expanded scope of new section 85A of the Courts Act 2003 (as brought about by the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17).
Member’s explanatory statement
This amendment (together with the amendment in the name of Lord Wolfson of Tredegar at page 281, line 12) removes provision that is unnecessary as a result of the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 281, line 12.
Member’s explanatory statement
This amendment is consequential on the amendments in the name of Lord Wolfson of Tredegar at page 187, line 17 and page 281, line 12.
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 281, line 12.
Member’s explanatory statement
This amendment is consequential on the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Lord Wolfson of Tredegar
“(10A) This section does not apply to proceedings in the Supreme Court.(10B) This section does not apply to court proceedings if provision regulating the procedure to be followed in those proceedings could be made by—(a) an Act of the Scottish Parliament,(b) an Act of Senedd Cymru (including one passed with the consent of a Minister of the Crown within the meaning of section 158(1) of the Government of Wales Act 2006), or(c) an Act of the Northern Ireland Assembly passed without the consent of the Secretary of State.” Member’s explanatory statement
This amendment provides that Supreme Court proceedings and court or tribunal proceedings within devolved competence do not fall within the expanded scope of new section 85B of the Courts Act 2003 (as brought about by the amendments in the name of Lord Wolfson of Tredegar at page 190, lines 27 and 28).
““court” has the same meaning as in the Contempt of Court Act 1981 (see section 19 of that Act);”Member’s explanatory statement
This amendment, and the amendment in the name of Lord Wolfson of Tredegar at page 190, line 28, expand new section 85B of the Courts Act 2003 so as to cover all “courts” within the meaning of the Contempt of Court Act 1981 (which include tribunals and other judicial bodies).
Member’s explanatory statement
See the explanatory statement for the amendment in the name of Lord Wolfson of Tredegar at line 27 of the same page.
Member’s explanatory statement
This amendment (together with the amendment in the name of Lord Wolfson of Tredegar at page 286, line 4) removes provision that is unnecessary as a result of the amendments in the name of Lord Wolfson of Tredegar at page 190, lines 27 and 28.
Lord Wolfson of Tredegar
Member’s explanatory statement
This amendment (together with the amendment in the name of Lord Wolfson of Tredegar at page 188, line 28) removes provision that is unnecessary as a result of the amendment in the name of Lord Wolfson of Tredegar at page 187, line 17.
Member’s explanatory statement
This amendment (together with the amendment in the name of Lord Wolfson of Tredegar at page 190, line 45) removes provision that is unnecessary as a result of the amendments in the name of Lord Wolfson of Tredegar at page 190, lines 27 and 28.
Lord Wolfson of Tredegar
“Expedited procedure for initial regulations about remote observation of proceedings
(1) This section applies in relation to the first regulations made under section 85A(8) of the Courts Act 2003 (as inserted by section 167(1)).(2) The regulations may be made without a draft of the instrument containing them having been laid before and approved by a resolution of each House of Parliament (notwithstanding section 108(3) of the Courts Act 2003).(3) If regulations are made in reliance on subsection (2), the statutory instrument containing them must be laid before Parliament after being made.(4) Regulations contained in a statutory instrument laid before Parliament under subsection (3) cease to have effect at the end of the period of 28 days beginning with the day on which the instrument is made unless, during that period, the instrument is approved by a resolution of each House of Parliament.(5) In calculating the period of 28 days, no account is to be taken of any whole days that fall within a period during which—(a) Parliament is dissolved or prorogued, or(b) either House of Parliament is adjourned for more than four days.(6) If regulations cease to have effect as a result of subsection (4), that does not—(a) affect the validity of anything previously done under or by virtue of the regulations, or(b) prevent the making of new regulations.”Member’s explanatory statement
This enables the first regulations made for the purposes of new section 85A of the Courts Act 2003 as inserted by Clause 167 (which, in particular, will specify types of court or tribunal proceedings in which remote observation directions will be available) to be made subject to the ‘made affirmative’ procedure rather than the normal affirmative procedure.
Lord Coaker
“Offence of assaulting a retail worker
(1) It is an offence for a person to assault, threaten or abuse another person—(a) who is a retail worker, and(b) who is engaged, at the time, in retail work.(2) No offence is committed under subsection (1) unless the person who assaults, threatens or abuses knows or ought to know that the other person—(a) is a retail worker, and(b) is engaged, at the time, in retail work.(3) A person who commits an offence under subsection (1) is liable, on summary conviction, to imprisonment for a term not exceeding 12 months, a fine, or both.(4) Evidence from a single source is sufficient to establish, for the purposes of this section—(a) whether a person is a retail worker, and(b) whether the person is engaged, at the time, in retail work.(5) The offence under subsection (1) of threatening or abusing a retail worker is committed by a person only if the person—(a) behaves in a threatening or abusive manner towards the worker, and(b) intends by the behaviour to cause the worker or any other person fear or alarm or is reckless as to whether the behaviour would cause such fear or alarm.(6) Subsection (5) applies to— (a) behaviour of any kind including, in particular, things said or otherwise communicated as well as things done,(b) behaviour consisting of—(i) a single act, or(ii) a course of conduct.(7) Subsections (8) to (10) apply where, in proceedings for an offence under subsection (1), it is—(a) specified in the complaint that the offence is aggravated by reason of the retail worker’s enforcing a statutory age restriction, and,(b) proved that the offence is so aggravated.(8) The offence is so aggravated if the behaviour constituting the offence occurred because of the enforcement of a statutory age restriction.(9) Evidence from a single source is sufficient to prove that the offence is so aggravated.(10) Where this section applies, the court must—(a) state on conviction that the offence is so aggravated,(b) record the conviction in a way that shows that the offence is so aggravated,(c) take the aggravation into account in determining the appropriate sentence, and(d) state—(i) where the sentence imposed in respect of the offence is different from that which the court would have imposed if the offence were not so aggravated, the extent of and the reasons for that difference, or(ii) otherwise, the reasons for there being no such difference.(11) In this section—“enforcement”, in relation to a statutory age restriction, includes—(a) seeking information as to a person’s age,(b) considering information as to a person’s age,(c) refusing to sell or supply goods or services,for the purposes of complying with the restriction (and “enforcing” is to be construed accordingly),“statutory age restriction” means a provision in an enactment making it an offence to sell or supply goods or services to a person under an age specified in that or another enactment.(12) In this section, “retail worker”—(a) means a person—(i) whose usual place of work is retail premises, or(ii) whose usual place of work is not retail premises but who does retail work,(b) includes, in relation to a business that owns or occupies any premises in which the person works, a person who—(i) is an employee of the business,(ii) is an owner of the business, or(iii) works in the premises under arrangements made between the business and another person for the provision of staff,(c) also includes a person who delivers goods from retail premises.(13) For the purposes of subsection (12), it is irrelevant whether or not the person receives payment for the work.(14) In proceedings for an offence under subsection (1), it is not necessary for the prosecutor to prove that the person charged with the offence knew or ought to have known any matter falling within subsection (12)(b) in relation to the person against whom the offence is alleged to have been committed. (15) In this section, “retail premises” means premises that are used wholly or mainly for the sale or supply of goods, on a retail basis, to members of the public.(16) In this section, “retail work” means—(a) in the case of a person whose usual place of work is retail premises, any work in those retail premises,(b) in the case of a person whose usual place of work is not retail premises, work in connection with—(i) the sale or supply of goods, on a retail basis, to members of the public, or(ii) the sale or supply of services (including facilities for gambling) in respect of which a statutory age restriction applies,(c) subject to subsection (17), in the case of a person who delivers goods from retail premises, work in connection with the sale or supply of goods, on a retail basis, to members of the public.(17) A person who delivers goods from retail premises is doing retail work only during the period beginning when the person arrives at a place where delivery of goods is to be effected and ending when the person leaves that place (whether or not goods have been delivered).(18) In this section, references to working in premises includes working on any land forming part of the premises.”
Lord Coaker (Lab)
My Lords, it is good to stand to move this important amendment here this evening. I declare my proud interest as a member of USDAW and of the Co-Operative Party. Amendment 263, in my name and that of the noble Baroness, Lady Bennett, provides for a specific offence of assaulting, threatening or abusing a retail worker, punishable by up to a 12-month sentence, a fine or both. I also rise in support of Amendment 264, from the noble Baroness, Lady Neville-Rolfe, and my noble friend Lord Hunt of Kings Heath, which I am pleased to add my name to. It provides for increased sentencing where an offence of common assault, battery, threatening or abusive behaviour, or intentional harassment is committed against a retail worker. It provides for, on summary conviction, 12 months or a fine, or both, and, on indictment, a sentence of up to two years.
I am very proud to present these amendments; this is a crucial issue for all of us across this Chamber and, indeed, in the other place, and one which has huge cross-party support, as we all want to do more for our retail workers. I am sure that the Minister is only too aware of this. An amendment in the House of Commons recently received significant attention and support from the Government Benches as well as the Opposition Benches. The issue has been campaigned on for years by workers, unions, parliamentarians, people who are interested in it and by the retail industry itself. It is time for the Government to act, and this Bill provides them with the vehicle to do that.
I hope noble Lords will bear with me while I talk a little about the scale of the problem. The Co-operative Group estimates that today, across its stores, 12 shop workers will be attacked and more than 110 will be abused and threatened. The British Retail Consortium estimates that, across the sector, every day 450 shop workers are abused or attacked. None of us condones that or thinks that it is acceptable; none of us is anything other than appalled by that fact.
The truth is that it seems to be increasing at a considerable rate. The Co-op Group, again, estimates that, in stores across the UK, there was a 650% rise in violence and a 1,700% rise in abuse towards their colleagues between 2016 and 2020. So, clearly, there is a major issue which individual retail and shop workers are facing every single day. Yet was it not just a few months ago that we were all talking about how essential these retail and shop workers, and others working in this sector, were to all of us? The pandemic gave us the chance to recognise the importance of people who perhaps in the past we had taken for granted, but whose real service to us we now recognised.
I do not know about anybody else, but during lockdown, going to the shops sometimes to get an essential supply became a day out. I am sure we are all aware of that. It was a fact that in every shop, store, service station or garage you went to, you actually met somebody else, and, frankly, particularly at the beginning of the pandemic, we had no real idea about the consequences of the level of human interaction that retail workers were having to do every single day as part of their job to keep us supplied with food and the services we needed. We talk, quite rightly, about what police officers and other emergency workers did, but the bravery of those workers as well is something that I know we all salute.
Now is the time for us to say that we recognise what they did during the pandemic and the service they provided, and perhaps for the first time properly recognise the importance of what they gave to the community as a whole. Is it not now time for us, as legislators, to respect that and act to create an offence or do something that actually delivers for them and prevents some of the unbelievable abuse that they receive? Let us remember as well that sometimes, of course, shop workers are targeted simply for enforcing the laws that we pass, whether it be laws on age-restricted products, or indeed, during the pandemic, laws with respect to wearing masks, and so on.
We also have to challenge the police and others on those instances when crimes were reported but the response was not what we would expect it to be. It is true that the police need to recognise that it is regarded as a serious matter when somebody is abused or threatened in a shop. Indeed, according to a freedom of information request made in 2020 by the Co-op Group, and bearing in mind that only serious incidents are reported, the police failed to attend in 65% of the incidents reported in Co-op stores. We need to do something about that.
We have had a Private Member’s Bill from the Labour MP, Alex Norris. In the past three years, there have been two separate Private Members’ Bills, both of which received strong cross-party support. My noble friend Lord Kennedy would wish me also to point to his work in this area—I would be in trouble if I did not. The Scottish Government have introduced a new offence following a Private Member’s Bill brought forward by the Labour MSP, Daniel Johnson, again supported by USDAW. So it can be done, and we are looking to the Government to act.
While the Bill was in the Commons, the leaders of 100 brands, including Tesco, Sainsbury’s, IKEA and Aldi signed an open letter calling for greater legal protection for retail workers, again showing their support. Abuse is not part of the job, and it should never become normalised, common or accepted. Nobody should go to work expecting to face abuse, threats or violence, but if these do happen, people need to be confident that the system is on their side. The current situation clearly needs to change, and the only way to do that is through strong and decisive action in Parliament.
Despite overwhelming evidence of the problem and a clear call for action from workers, employees and representative groups from across the sector, we are still waiting for the Government to respond, in stark contrast to the Scottish Parliament. I look forward to the response from the Minister, who I know cares about this issue, and hearing how she will respond to the pleas being made. There is a perfect opportunity to address this in this Bill. It is time for the Government to act; the time for waiting has stopped. I look forward to the Minister’s reply.
Baroness Neville-Rolfe (Con)
My Lords, I offer strong support for adding a new power to this Bill to try to stop the disgraceful assaults on retail workers. I am glad that speaking today links me to my old friends at the trade union USDAW and the British Retail Consortium. I own some retail shares, notably in my previous employer, Tesco, and I should also refer to my register of interests.
It has been a very difficult 18 months for store workers. They have been the heroes of Covid, responding magnificently by keeping food on the shelves and delivered to our homes throughout. They have had to keep going relentlessly and cope with the bewildering array of changing Covid rules and regulations, often at a time when they are short-staffed because of the impact of the pandemic.
Nearly 3 million shop workers face a rising threat of violence as a result of customer anger at mask wearing, shortages and irritating or changing store guidance on Covid. This has added to assaults from those challenged for trying to buy alcohol, knives and so on illegally, and also attacks from shoplifters. I remember well dealing with what is probably now a relatively minor case when I was working in Tesco at Brixton. The woman concerned had several jars of coffee up her trousers and struggled and bit as we tackled her.
As the noble Lord, Lord Coaker, mentioned in his compelling speech running through the long history of this problem, the British Retail Consortium says there were 455 incidents a day at stores in 2020, despite a huge investment in security measures such as body cameras, guards and panic alarms. A lot of this is related to wider criminal activity such as knife crime and drug-taking. It is a real worry for small shops: attacks can affect their viability and contribute to the disturbing rate of high street shop closures. It is also a huge issue for the larger retailers, which is why so many of their CEOs, including those of various Co-op groups, have come together to call for action in a recent letter to the Prime Minister. I will give an example: when I approached Tesco for an update, it said it faced over 1 million criminal incidents in 2020-21 and estimated that, on current trends, this would increase by another 20% this year unless something was done.
Lord Lea of Crondall (Non-Afl)
My Lords, I support the general thrust of what has been said. We have heard from a remarkable coalition that includes trade unionists and a former chief executive—I think that is the correct appellation—of Tesco. In one sense, it does not matter exactly how the amendment is worded; the important thing at the moment, speaking as a former trade union official, as noble Lords may know, is that something should be committed in principle by the Government. It should be left to Ministers, ultimately, to choose the exact wording, but we should make sure that this hugely important principle, backed up by a lot of day-to-day evidence—most notably from the noble Baroness, Lady Neville-Rolfe—is brought forward in some way. It should be acknowledged by the Minister, who has a good idea of the mood of the House on this.
Baroness Bennett of Manor Castle (GP)
My Lords, I shall speak to Amendment 263, to which I was pleased to attach my name. I thank the noble Lord, Lord Coaker, for tabling it and providing a very clear introduction. I welcome the support of the noble Baroness, Lady Neville-Rolfe, for the amendment as well. I should declare, since we are doing lots of declarations, that I am a supporter of the Institute of Customer Service “Service with Respect” campaign, to add to our collection of organisations involved in this process.
We have already covered this in some detail, so I want to add just a couple of points. The noble Lord, Lord Coaker, referred to the fact that legislation is being introduced in Scotland already, and it is important to stress that part of that is an aggravating offence—if people have been trying to enforce the law, for example on the purchase of alcohol, et cetera. That makes the very important point that we are asking retail workers, who are often very low-paid and may not have much in the way of protection, to enforce the law for us, and that needs to be acknowledged in the law.
A lot of this discussion has focused on how difficult things have been during the Covid pandemic, and that is obviously true, but there is a really important figure from the British Retail Consortium in 2019, so it is pre-pandemic. There were 455 incidents a day, up 7% on the previous year, so this is not just some Covid situation that might disappear should the pandemic disappear; this is a long-term trend. A recent survey, also by the British Retail Consortium, of 2,000 workers over 12 months showed that 92% had experienced verbal abuse, 70% had been threatened and 14% had been assaulted. This really has to be described as an epidemic—it is a word we hear a lot, but this is definitely very much the case.
I also stress—here I may depart from the noble Baroness, Lady Neville-Rolfe—that changing the law, which has been called for on all sides of the Committee, does not excuse employers from doing more, particularly large employers who have the resources to provide security. By the nature of my job, I very often travel late at night, having been speaking at a public meeting and catching the train home. I go into chain stores on those occasions and I often see very young workers, sometimes on their own, looking and clearly feeling very exposed and very much in danger. I think that often they do not have adequate security.
There is also a question to be asked, particularly of employers, about ensuring that these workers are paid properly, treated with respect and have decent conditions. That will affect the way the whole of society look at these workers, and, I hope, the way they get treated.
Amendment 263 is important. As has been widely said, there is a huge amount of support for it, but it does not excuse employers from doing much more. I also say that while I understand the impulse behind Amendment 264, I do not think that is the way forward. We know that we have a record prison population—it is something we have debated in other parts of the Bill—and that prison is not working, so just to have the knee-jerk reaction of, “Let’s make the sentences longer”, is not the answer. There has to be a recognition of the fact that these crucial workers need protection through some form of Amendment 263.
Lord Beith (LD)
My Lords, I very much agree with noble Lords who have said so much about the retail workers on whom we have depended so greatly and will continue to depend in the future and who face so many instances of assault and attack. The campaigns that this has generated show just how seriously we take this, but I have to ask, particularly in the light of Victoria Atkins’s commitment in the Commons, whether the Government have identified a serious gap in the law, filling which would alter the situation materially for the better, or whether the worst of the problem arises from inadequate police response to incidents. The noble Lord, Lord Coaker, quoted figures for that. Perhaps there is an inadequate police presence in areas where this kind of attack is prevalent, or perhaps the inadequacy comes, in some cases, from the Crown Prosecution Service about cases that should be brought to court.
This kind of attack is affecting retail workers in a number of different situations. Some of it is drug related, with people desperately trying to get money to pay for their drugs and attacking shopworkers when they are found stealing goods from a shop. Some of it is alcohol related and alcohol enforcement related, as the noble Lord, Lord Coaker, and the noble Baroness, Lady Bennett, have pointed out, whereby shop workers have simply been trying to enforce the law. Where I live at the border with Scotland the issue is more complicated because the law is different on either side of the border.
Some of it is even hate crime of which ethnic-minority shop owners have been the victims. That is so awful when one thinks of the incredible contribution that, for example, Ugandan and Kenyan Asians have made in providing retail services at all hours of the day and night in all sorts of communities, including in some of the most difficult areas. Those shop owners deserve our support and protection, but we need to know how best to provide that.
One my concerns about the amendments and the approach taken so far, which is perhaps a tribute to the effective campaigning of retail workers and their organisations and representatives, is that a number of other groups of people who deal with and serve the public are also exposed. My mind turns to the staff of estate agents, for example—the Suzy Lamplugh case is a vivid reminder. It is not clear whether such staff are covered by the retail workers’ provision. They may be, but I am far from certain. I also think of transport staff, housing officers, local authority planning officers and even parking wardens. It is sometimes seen as some kind of joke to laugh at parking wardens and at how angry people get at them. Any kind of harassment or attack on people who are serving the public is no joke at all and requires the attention of government.
As the noble Baroness, Lady Bennett, pointed out, however, that attention is not necessarily best served by simply putting in longer maximum prison sentences, thereby creating sentence inflation and generating far more expenditure on prison, which could perhaps be better spent on policing and community support of various kinds, including activities directed at young people in local communities who are drawn into violence. We need to look at what else we can do in terms of police response, CPS commitment and community support to support the staff who serve us.
If the Government have identified a significant gap in the law, a change to which would help those responsible for enforcement and protection, we would be interested to hear it. However, one way or another, we need to help those who are helping us.
Baroness Stowell of Beeston (Con)
My Lords, in some respects similarly to the noble Lord, Lord Beith, I come to this debate with an open mind in terms of the specifics of the amendments put forward by my noble friend Lady Neville-Rolfe and the noble Lord, Lord Coaker. I very much align myself with him and others who have spoken in that I am appalled at the assaults, attacks and abuse of people on the receiving end who work in stores of all kinds.
However, I will be interested to hear what my noble friend the Minister says as regards whether the law currently provides for these kinds of attacks. One of the things that I found extremely concerning in the briefing provided by USDAW and others was the lack of police response when shop workers were on the receiving end of an attack. When they contacted the police, there was little or no reaction. That is really troubling.
The only thing I want to add to what has been said relates to something that the noble Lord, Lord Coaker, touched on. I know that the noble Baroness, Lady Bennett, also referred to the fact that we are asking shop workers in many respects to uphold the law for us. However, there is another aspect to the role of shop workers and shopkeepers that we do not mention often enough and is important. They are community leaders and people in whom we should encourage a sense of authority for themselves. I want people who are doing these jobs to feel that they are holding a position of power. They are responsible for a public place and when they are at work they are in charge. They deserve our respect for that. I see them much more than just as service providers; they are standard setters. In local communities, in particular in local convenience stores, they can make an enormous contribution to the health of a community and the way in which local people feel about themselves.
If the Government are inclined to go down this route of legislating in the way that has been proposed—and even if they are not—I encourage the Minister that there should be some effort in conjunction with legislation to promote the importance of retail workers, not just in the way they provide a service to us but in the way they are leaders of their communities and important to our maintaining the social norms and standards that are crucial to the health of our society as a whole.
Lord Paddick (LD)
I was not going to speak in this debate but, very briefly, as the police have been mentioned, I should mention a meeting I had fairly recently with a police superintendent in London, who worryingly told me that the police were being made aware that there were a large number of solvable crimes, where people could be prosecuted, and the police no longer had the resources to pursue those offences. From what has been said in the debate, and from the briefing from USDAW, it is extremely worrying if offences are being committed against retail staff, where there is often closed circuit television of the perpetrator, yet the police still do not have the resources to prosecute those offences. As we all know, if somebody feels they can get away with a crime, or word gets around that you can go to a particular store and get away with it because the police will not do anything, it encourages more people to engage in the offence.
Baroness Jolly (LD)
I thank the noble Lord, Lord Coaker, for his clear outline of the problem at the beginning of the debate. That was really helpful. I support the amendments creating the offences for assaulting a retail worker.
I look at this problem from a completely different perspective. Apart from the four years I was at university, I have spent all my life in really rural settings, so I identify with the weekly trip to the supermarket. We have a village shop which doubles up as the post office, but I cannot walk there because the roads are too narrow so I have to drive. It is a different sort of world. I identify with this from when I was at university in Leeds too; the corner shops at the end of terraces were exactly the same sort of set-up as a rural shop. But they had their problems. CCTV has now appeared in these shops, which was never there before. There was a level of trust, which is slightly eroded when people move into the village and behave in a different way. This sounds like the 1950s, and sometimes it is.
Whether we are talking about cities or villages, there are many small shops still, and a lot of them have post offices which keep them open. We should not forget that, because they serve a lot of people: where I live, a lot of people do not have cars, and older people really prefer going to the small village shop and still collect their pension there. But a single-handed shop with limited security and often no cameras is a danger, and these shop workers are vulnerable to assault, even in areas where you think everybody knows everybody else’s business. Will the Minister tell us, when she sums up, what sort of recommendations or advice are given to such small shops by the local police? Is there any government guidance to ensure that their safety and that of their workers are protected?
I thank the ACS for its really helpful background briefing. The two amendments are really interesting: one in the name of the noble Lord, Lord Coaker, is about the offence of assaulting a retail worker, and the other, in the name of the noble Baroness, Lady Neville-Rolfe, is much the same. Something should come back: whether it comes back from the Government or from amendments tabled by Members, we really need to put a marker down before the Bill finishes on the issue of assaulting shopworkers. It might be quite sensible if those who have added their names to Amendments 263 and 264 could sit down together to craft an amendment that would fit with all the points that were made in this short but really quite informative and well-informed debate, and then bring something back for Report.
Baroness Williams of Trafford (Con)
My Lords, I am very grateful to the noble Lord, Lord Coaker, and my noble friend Lady Neville-Rolfe for tabling their amendments, and for the opportunity that I have had to discuss their amendments with them before today. Both have spoken forcefully on behalf of retail workers, and noble Lords will have witnessed the strength of their convictions and the deep basis of knowledge from which they speak. I cannot let this opportunity go by without paying tribute to the noble Lord, Lord Kennedy of Southwark, who has—I could say harangued me for four years—shown such tenacity on this matter that he deserves a mention.
I start by echoing the comments made in the House of Commons by the then Minister for Safeguarding, in showing my support and respect for all those working in the retail sector. As my noble friend Lady Stowell of Beeston said, they have shown such tireless dedication as public servants, really, providing essential services to the public throughout the pandemic. I totally identify with the comments of the noble Lord, Lord Coaker, about going to the shops being the highlight of the day during the pandemic. It became a daily ritual for our household, certainly.
It is essential that we all feel safe at work, which is why assaults on any worker providing a service to the public is clearly unacceptable. It is really important that where such assaults or abuse occur, the perpetrators are brought to justice. In the Commons, Minister Atkins committed to actively consider this issue and that remains the Government’s position, but as part of that process of consideration I very much wanted to hear and then reflect on the debate today. I welcome the fact that those noble Lords who have contributed today spoke with such clarity and strength of feeling and gave us very good direction.
I want to say a bit more about the current position and the factors that the Government are weighing up as we determine how best to proceed in this area. The noble Lord, Lord Beith, asked about the gap in the law. Obviously, a wide range of offences already exist covering assaults on any worker, including retail workers, and they include offences such as common assaults. The example that my noble friend Lady Neville-Rolfe gave could encompass grievous bodily harm or, indeed, actual bodily harm, harassment and other public order offences, all of which criminalise threatening or abusive behaviour intended to harass, alarm or distress a person.
Furthermore, the courts have a statutory duty to follow sentencing guidelines, which state that it is an aggravating factor for an offence to be committed against a person who works in the public sector or who is providing a service to the public. This means that any offence that occurs against a victim providing a service to the public, including those working in the retail sector, will be considered by the court as meriting an increased sentence. I have also heard the comments and concerns about the provisions in the Bill that seek to increase custodial sentences—including the point made by the noble Lord, Lord Beith, about sentence inflation—and it is crucial that we take into account the impact on our courts and prisons, as he said, when considering whether to increase sentences.
At Second Reading, the noble Lord, Lord Rosser, asked what meetings Ministers had held over the summer with businesses, trade unions and groups representing retailers to discuss this issue. The Home Office has undertaken extensive consultation on the subject of violence and abuse towards retail workers, and discussions on this subject go back several years, as I have previously stated. Similar amendments were tabled to previous Bills such as the Offensive Weapons Bill, which is why the Government committed to a call for evidence on the levels of violence and abuse faced by retail workers.
That response was published in July last year and it increased our understanding of the problems faced by retail workers. A programme of work has been under way through the National Retail Crime Steering Group, which the Minister for Crime and Policing co-chairs with the British Retail Consortium. The steering group brings together the Government, retailers, unions and trade associations, the Association of Police and Crime Commissioners and the police-led National Business Crime Centre to make sure that the response to retail crime is as robust as it can be, as well as ensuring that key crime drivers, including substance misuse, are comprehensively considered. I hope that goes to the point made by the noble Baroness, Lady Jolly. It has been and continues to be an important forum for discussions on the causes of violence and abuse in the retail sector and for working together to find solutions and provide support to retailers.
The matter of violence and abuse against retail workers has been the focus of the National Retail Crime Steering Group for the past 18 months. The Home Office is leading a programme of work designed as a direct response to the call for evidence and agreed by the steering group and wider retail sector. To date, six task and finish groups have been established to develop practical resources to support retailers and their employees.
Earlier this year, the Home Affairs Select Committee conducted an inquiry into violence and abuse towards retail workers. In response, retailers, unions and trade associations put forward evidence about their experiences of violence within the sector. The Select Committee recommended that the Government consult on the scope of a new offence, recognising the particular pressure on those in occupations where they are asked to enforce the law, and taking into account the provisions of the Protection of Workers (Retail and Age-restricted Goods and Services) (Scotland) Act 2021, which came into force in August.
As I have set out, the Government have engaged extensively with the retail sector and the police. In response to the points made by the noble Lords, Lord Beith and Lord Paddick, the police have recruited 11,000 of the targeted 20,000 increase to their number. The government response to the HASC inquiry makes clear the Government’s commitment to address this issue and to take into account the legislation in Scotland.
I assure noble Lords that the Government are continuing to consider whether changes, including legislative changes, are needed and will reflect carefully on the debate today. On the basis of that very firm undertaking that the Government are considering as a matter of urgency how best to balance those many issues, I hope the noble Lord will feel happy to withdraw his amendment.
Lord Coaker (Lab)
I thank the Minister for her response. I am an optimistic person by nature and I thought that there were grounds for optimism in the way in which the Minister talked about weighing up the options and looking at the various ways forward, including—and this was as a really important remark that noble Lords may have heard—“legislative change”. That is the key thing. A number of comments were made by various noble Lords. The Minister will have heard them. In the interests of time, I shall leave it there, but we will look forward to the Government coming forward with something on Report, or us tabling our own amendments. In thanking noble Lords for their support, I beg leave to withdraw the amendment.
Lord Coaker
“Restorative justice
The Secretary of State must, every three years—(a) prepare an action plan on restorative justice for the purposes of improving access, awareness and capacity of restorative justice within the criminal justice system, and collecting evidence of the use of restorative justice,(b) lay a copy of the action plan before Parliament, and(c) report on progress in implementing any previous action plan to Parliament.”Member’s explanatory statement
The amendment aims to ensure that access to restorative justice services improves over time for the benefit of victims and to reduce crime.
Lord Coaker (Lab)
My Lords, a couple of hours ago I received apologies from the noble Baroness, Lady Meacher, who is unable to be with us for personal reasons and has been unavoidably detained. I hope noble Lords will allow me to read the comments that she would have made. As I say, the noble Baroness, Lady Meacher, apologises to the Committee, noble Lords and the Minister for not being here this evening to move this amendment. She has been, as I said, unavoidably detained and I know the Committee will forgive her absence.
Amendment 265 aims to ensure that access to restorative justice services improves over time, for the benefit of victims and to reduce crime. The amendment would require the Secretary of State to prepare an action plan on restorative justice and for that plan to be laid before Parliament, alongside a report on the progress made in implementing earlier government action plans. In doing so, it is the hope of the noble Baroness, Lady Meacher, that the Government will consider restoring ring-fenced funding for restorative justice.
Between 2013 and 2016, restorative justice received support from the Ministry of Justice via ring-fenced funding to PCCs. Since the change in 2016, in which the ring-fence was dropped, access to RJ has reduced in some areas to below 5% of previous levels. The APPG on Restorative Justice reported in its inquiry published in September this year that this
“has led to a ‘postcode lottery’ for victims of crime”,
with access varying hugely depending on which PCC or local authority area the victim happens to be in.
In 2014, the coalition Government made a commitment in their restorative justice action plan that every victim of crime should be made aware of RJ services. The plan committed to developing
“a more strategic and coherent approach to the use of restorative justice in England and Wales.”
In the Conservative Government’s 2018 update of the plan, the top priorities remained ensuring equal access to restorative justice for victims at every stage of the criminal justice system and improving awareness of RJ, how it works and how to access it. The APPG inquiry found that there was a lack of understanding of restorative justice and what a victim was entitled to, not only among the public but among professionals in the criminal justice sector.
I ask the Minister whether the Government hold statistics on how many victims have been offered restorative justice as part of their experience of the criminal justice system. What actions have been taken towards the priorities outlined in 2018 and when do the Government plan to publish an updated action plan? So often in this Bill, our debate has turned to the importance of prevention, and stopping offending and reoffending to break that cycle. The current Secretary of State for Justice listed preventing reoffending as one of his top priorities for keeping the country safe. Evidence has shown that access to quality restorative justice programmes is effective in reducing reoffending. In 2016, the Home Affairs Select Committee found that
“there is clear evidence that restorative justice can provide value for money by both reducing reoffending rates and providing tangible benefits to victims.”
I will not keep the Committee but, in coming to a close, will say that the noble Baroness, Lady Meacher, particularly wished to highlight that this amendment does not propose anything new or radical. It merely seeks to return to the funding arrangements and strategic direction in place prior to 2016. I look forward to the Minister’s reply, which I hope will be encouraging on the Government’s commitment to restorative justice. I beg to move.
Baroness Harris of Richmond (LD) [V]
My Lords, I speak in support of Amendment 265. I am very sorry that the noble Baroness, Lady Meacher, is not able to be in the Chamber.
Many years ago, when I was a magistrate and at the same time chair of my police authority, I wondered how we could bring in the concept of restorative justice. It was not an option for us then as it did not appear in our guidelines—that might have changed, I do not know. It was apparent, though, that repetitive cautions given to young offenders simply were not working. Something needed to change.
I became interested in restorative justice because of a remarkable chief constable, Sir Charles Pollard, who was then chief constable of Thames Valley Police. He had been advocating restorative justice for some time. He was extremely well supported by the chair of the police authority, Mrs Daphne Priestley. I thought it was a very interesting and potentially life-changing intervention for some young offenders, and so it has proved to be.
Restorative justice aims to foster individual responsibility by requiring offenders to acknowledge the consequences of their actions, be accountable for them and make reparation to the victims and the community. Initially for use with young offenders committing minor crimes, it quickly caught the imagination of communities, which liked the idea of a victim being able to confront their offender, who was made to realise the impact of their criminal behaviour. It is done with seasoned practitioners who have a wealth of experience in this discipline, as it needs to be a formal procedure. They have to ask the right questions in the right way for there to be a successful outcome, which would be when the offender realises the harm she or he has done and makes some sort of reparation to the victim. Meeting face to face, where both sides agree to that, can be a formative solution to an otherwise potentially serious punishment, even jail.
In London trials, 65% of victims of serious crime said that they would be happy to meet their offenders and talk about how that had affected them. The impact of this intervention has far-reaching benefits for everyone involved. Over the years, the success of the restorative justice model has worked alongside police forces, local authorities, the Prison Service, courts and schools. It has helped reduce permanent exclusions in schools, and in a sample case in Lincolnshire, in the first year of using this system the restorative service, as it is called there, worked on 53 cases. This was extended subsequently to 135 cases and became an integral part of the Behaviour Outreach Support Service there—BOSS—in which restorative justice sits with its partners.
Restorative Solutions, established by Sir Charles Pollard and Nigel Whiskin in 2004, is a not-for-profit community interest company that I think the Government need to contact for help with understanding just how important restorative justice can be to the benefit of victims of crime, and its potential to reduce criminal behaviour. It needs properly financing, of course, and to date that has not happened, so if the Government are really intent on reducing crime and helping victims, as they say they are, I suggest that this is absolutely the right solution for them to promote.
Viscount Brookeborough (CB)
My Lords, I support this amendment. I apologise for not speaking on the subject earlier. The Bill is far too complicated for me as a whole. I saw this in the paperwork today and, surprisingly, I am here so I thought that I ought to say something.
I was on the first Northern Ireland Policing Board. One of the subjects that came up to us was restorative justice as it was being practised in Northern Ireland. The origins of it are very important. In our case, it came under the two communities and terrorism. Post the peace process and ceasefire, these local communities were trying to police themselves—partly because they rejected the police completely. Yes, they dealt out punishment beatings, kneecappings and far worse, but what was interesting was that, although the communities might not have liked the punishments, they began to see a reduction in bad behaviour on the streets.
When it came in front of the policing board, we looked at other countries. The fact that it came out of terrorism in Northern Ireland is not an indication that it would be no good or would not fulfil its true potential in England, because we looked at Australia, Canada, New Zealand and America, where it had been really very successful.
There was then the idea of how to get this to be more in line with justice, because, naturally, the Department of Justice and—I am not accusing them of this—judges, and to a certain extent senior policemen, were reluctant to see anything that was outside their immediate world taking over something of it. We went down the line of bringing it into being an official practice, and that took quite a lot of nerve.
But it is extraordinary, if you actually go and visit, to see what is going on. The most important thing is that restorative justice is victim based, not perpetrator based—that it is not a soft touch for the perpetrator. I will not speak for long on this, because I have not even prepared. But it is not just a way of solving things; it does a lot more. The victims are incredibly satisfied with restorative justice. A survey produced when they were doing a seminar on the EU day of the victim in February 2019 said that 85% of victims were satisfied with the outcome, and 69% of perpetrators did not continue. The bonus for society is multifaceted: fewer people get convictions for what may, at times, be on-the-spot bad behaviour or, as we have seen, 69% of them do not misbehave again, so they have a clearer record for future employment. It keeps them out of short periods of detention. It was used originally for youths, and we do not have enough well-supervised room for youths in detention. So restorative justice helps the victims, helps the perpetrators remarkably, and is very good for society.
In the 2016-17 Session, the House of Commons Justice Committee came out with its report on restorative justice and supported it. The committee particularly supported looking at Northern Ireland. It is really nice when we can say that you should look at something positive from us in Northern Ireland—however, do look somewhere else.
While we have been in this Committee, because I was panic-struck about having anything to say, I googled “restorative justice”. We hardly need this debate. There is not a bad word about it, and there are so many pages I gave up after two or three and wrote down a couple of notes on it. But this is something that successive Governments—including Labour when they were in power—have not given true support to.
What about our prison population? What about sending people into detention, the “college of crime”, when restorative justice has the potential to be such a success? As I said, I think this debate is unnecessary. Every single person in your Lordships’ House and everybody outside can google it and have a look. If the justice side, judges and some senior policemen are still slightly careful about it because it seems to be out of their hands, they may need a bit of persuading.
But funding is an issue, and I have just heard—because I have not looked at it—that the funding was reduced. This is madness. We know that budgets are a problem, especially after everything we have been through. They are a problem for the police, for social events such as this and for justice. But this is madness. This is cutting off a not very great budget which would be saving us. The figure is that every £1 spent has saved £8. I do not think that is very well substantiated, but there is a big payback, and the young people of this country—and we are moving on to adults in Northern Ireland—earn the support for a system that is socially good and good for our population.
Lord Paddick (LD)
My Lords, again, I was not going to speak in this debate, but it is important for me to share my professional experience of this. I once worked with Professor Larry Sherman, who was a leading academic on restorative justice at the time, on a pilot scheme in the Metropolitan Police. In support of what the noble Viscount has just said, two major things came out of that pilot.
One was about victim satisfaction. Obviously, the process was voluntary—victims were not made to confront their attacker if they did not want to—but many felt so much safer, for example if they had been mugged in the street, having met their attacker face to face than victims who were attacked by some anonymous person. They understood more about their attacker from that face-to-face meeting, so it is good in terms of victim satisfaction. This may be counterintuitive to members of the Government who feel that the public might see it as a soft option, but victims really benefit from this.
The other thing was the impact on perpetrators. Larry Sherman rightly pointed out that many offenders, particularly young ones, appear in front of a court but they never say anything. They plead guilty. They have a solicitor or a barrister representing them. They sit at the back, disengaged from the whole process, which happens without them participating in it at all. It has no real impact on them—apart from the custodial sentence at the end of it, perhaps. They do not quite understand why they end up in custody because they have not participated in the process at all. On the contrary, with restorative justice, they sit opposite the victim and the victim tells the perpetrator how that offender made them feel. This has a salutary effect on the perpetrator and their future offending behaviour.
I just wanted to tell the Committee about that experience because other noble Lords have not mentioned those two aspects of restorative justice.
Baroness Bennett of Manor Castle (GP)
My Lords, we have already had an extensive debate so I will be brief. I must note that I have heard my noble friend Lady Jones of Moulsecoomb talk about this issue often; it is something that she is extremely passionate about. I have no doubt that she would have attached her name to this amendment had space been available under our systems.
We have heard some terribly powerful contributions, particularly from the noble Baroness, Lady Harris of Richmond. I really hope that the Government were listening. I am not sure that the point has been made that restorative justice should be the foundation of our justice system. It should be fundamental to what it is all about. At the moment, by contrast, it seems to be an afterthought added on at the end. This means that we have seen a loss of funding for some really practical things, such as restorative justice training for all prosecutors, including the independent Bar, so that they can better identify opportunities for restorative justice when handling cases. We also need to see restorative justice training for magistrates and judges so that they can be fully involved in facilitating it. Just as judges have a central role in enabling alternative dispute resolution in the civil courts, in the criminal courts, they should promote and encourage a restorative approach all the way from the initial arraignment right through to sentencing.
What we are talking about here is coming out after the awful event of a crime and repairing, restoring and making things better. We know well from our criminal justice system—a system at the end of which everyone comes out feeling worse about it—that what we have at the moment is not working for the people involved. It is not working for victims. It is not working to provide change for perpetrators. It is not working for the entire community.
Lord Blunkett (Lab)
My Lords, I realise that I am breaching protocol because I was not here at the beginning of the debate on Amendment 265. I apologise profusely to the House and to the Minister. On a lighter note, one day we will have a Braille annunciator and an audible signal that I can pick up. I would not be here at this time of night if I did not care about this proposition and had not pledged to the noble Baroness, Lady Meacher, that I would support it, so please forgive me; I shall be incredibly brief. I hope that the noble Baroness is recovering well.
Some years ago, I took part in what could be described as a slightly bizarre and almost unreal television programme, “Banged Up”. It was a five-part series in which real ex-prisoners, real ex-offenders, real victims and an ex-governor, who is now a criminologist at the University of Birmingham, took part in an experiment to see how people would react to understanding what they have done and being able to relate to their victims. It was remarkable: it brought home to me, and I hope to all those viewing, that restorative justice could make a difference to the victim and how they felt and to their future, and, crucially, to the perpetrator, in understanding the impact of their crime and how to then redeem themselves and put things right. It was crucial to both their futures.
I commend the initiative in demonstrating in this short debate how vital it is to remember that putting things right, and getting restorative justice to ensure that perpetrators do not repeat their crime, is far more important than punishment.
Earl Attlee (Con)
My Lords, I agree with everything that has been said. One of the most obvious applications for restorative justice would be in the aftermath of a road traffic accident. I touched on this during our debates on road traffic offences. The difficulty is that, in motor vehicle insurance, the contract prohibits the parties from discussing the accident at all, making it impossible to use restorative justice for road traffic offences related to accidents. Can my noble friend the Minister consider this and write to me on the point? I do not expect a reply right now.
Viscount Brookeborough (CB)
Restorative justice is a very wide issue, and one should not think that because it does not work for road traffic accidents it does not work. Furthermore, it is done only with the agreement of the parties involved.
Lord Marks of Henley-on-Thames (LD)
My Lords, we welcome this amendment and the opportunity to discuss restorative justice. We are very grateful to the noble Lord, Lord Coaker, for relaying the views of the noble Baroness, Lady Meacher, who has a long-held commitment to restorative justice that is well known.
We fully support the amendment and are concerned that the Government should take in how important restorative justice is felt to be in this House. This debate has given us the opportunity to make that clear. We were privileged to have the explanation of the reasons for restorative justice and the comprehensive account of its birth and development from my noble friend Lady Harris, who set out, from her experience of police work and as a magistrate, how restorative justice has developed and its value.
The amendment is important because we—some of us, anyway—have concerns that, although there is this commitment around the House, there may be a danger of progress stalling. That is why it is so important that there should be a call for the preparation of an action plan, that it should be laid before Parliament and that there should be a report on the progress on restorative justice.
Members of the House will have been interested to hear the account of the noble Viscount, Lord Brookeborough, on how restorative justice developed in Northern Ireland from a state of great hostility, where real potential enemies were confronting each other, and how restorative justice became reflective of community justice as perpetrators and victims came into contact. He made the point that this was very much not a soft option but was victim based, and that analysis from the circumstances in Northern Ireland was, I felt, reflected by the analysis of my noble friend Lord Paddick, who gave the history of restorative justice in London and dealt with the achievement of victim satisfaction and, interestingly, a greater feeling of safety on the part of victims. He also talked of the benefit for perpetrators in the contact between the victim and the perpetrator; that was a point made by the noble Lord, Lord Blunkett, who was one of the signatories to the amendment.
I will be very interested—we will be very interested—to hear the Government’s response, which we hope will give us an indication that the Government take restorative justice as seriously as the speakers this evening do and that their commitment to it will be increasing and continuing.
Lord Wolfson of Tredegar (Con)
My Lords, I thank the noble Lord, Lord Coaker, for proposing the amendment in the name of the noble Baroness, Lady Meacher, who is unable to be with us this evening. She spoke eloquently at Second Reading about the benefits of restorative justice, and I am very sorry that she is not in her place this evening. I am sure that I speak for the whole Committee in wishing her well. She did, however, have a meeting with me on this topic, and I record my thanks to her for her time and for the discussion. She expressed concern that the Bill did not include provision for restorative justice. The amendment is trying to fill that perceived gap by requiring the Home Secretary and the Justice Secretary to publish an action plan for restorative justice every three years.
I am grateful to the noble Baroness, Lady Harris of Richmond, for her support for restorative justice. I agree that, in the right circumstances, it can have far-reaching benefits. I have heard and felt the mood of the Committee on this point, but the truth is that I did not really need any persuading as to the importance of restorative justice. It can bring those harmed by a crime and those responsible for that harm into communication, and it can help everyone affected by the crime to play a part in repairing the harm; that is commendable. The Government support restorative justice where it can be suitably used.
However, with respect to the noble Baroness, Lady Bennett of Manor Castle, I would draw a distinction between civil cases and criminal cases. We have to remember that in a civil dispute—this is part of the answer to the road traffic point, but I will write to my noble friend as well—there are two parties before the court. I can settle my case on whatever terms I want if the other person agrees. When it comes to crime, there is a public interest; we prosecute in the name of the public. We do not allow victims to determine always whether the offender serves a punishment or not. I am not saying that restorative justice is not applicable, but we have to remember that there is a different set of criteria and principled underpinnings to our civil justice system and our criminal justice system.
Lord Coaker (Lab)
I thank the Minister for his reply and for the way in which he tried to answer the various questions that noble Lords raised. We have heard from many people about the importance of restorative justice. This is an important argument and debate that will not go away. It remains a priority for all of us and I am sure others will take this forward, including the noble Baroness, Lady Meacher. With that, I beg leave to withdraw the amendment.
Lord Cashman
“Disregards and pardons for convictions etc. of certain offences
(1) The Protection of Freedoms Act 2012 is amended as follows.(2) In section 92 (power of Secretary of State to disregard convictions or cautions)—(a) in subsection (1)(b), omit “or”,(b) in subsection (1)(c), at the end insert “or”,(c) after subsection (1)(c), insert—“(d) any other offence which falls within subsection (1A),”,(d) after subsection (1), insert—“(1A) An offence falls within this subsection if the offence— (a) regulated, or was used in practice to regulate, sexual activity between persons of the same sex, and (b) either—(i) has been repealed or, in the case of an offence at common law, abolished, or(ii) has not been repealed or abolished but once covered sexual activity between persons of the same sex of a type which, or in circumstances which, would not amount to the offence on the day on which this subsection comes into force.(1B) Where an offence of the type described in subsection (1A) covers or once covered activity other than sexual activity between persons of the same sex, the offence falls within subsection (1A) only to the extent that it once covered sexual activity between persons of the same sex.(1C) In this section, “sexual activity between persons of the same sex” includes—(a) any physical or affectionate activity between persons of the same sex which is of a type which is characteristic of persons involved in an intimate personal relationship,(b) conduct intended to introduce or procure such activity.”,(e) in subsection (3)(a), before the words “the other person” insert “in respect of an offence mentioned in subsection (1)(a)-(c)”,(f) in subsection (3)(b), substitute the full stop with “, or”,(g) after subsection (3)(b), insert—“(c) in respect of an offence that falls within subsection (1A) the conduct constituting the offence, if occurring in the same circumstances, would not be an offence on the day on which this subsection comes into force.”” Member’s explanatory statement
The purpose of this new Clause is to extend the current disregard and pardon schemes in England and Wales to enable individuals who were convicted of or cautioned for offences because of engaging in same-sex sexual acts, of a kind that would be lawful today, to apply to have a conviction or caution disregarded and, if successful, be pardoned.
Lord Cashman (Non-Afl)
My Lords, I speak in favour of Amendments 266 and 267 and pay tribute to the work of my noble friend Lord Lexden and Professor Paul Johnson of York in doing so. Due to the lateness of the time I want to focus exactly on what our amendments do: they are focused on the pardons and disregards scheme. In 2012 the scheme was introduced to enable those living with a caution or conviction for a now-repealed homosexual offence to have that caution or conviction disregarded. In 2017 a further scheme was introduced to provide those so cautioned or convicted, both living and dead, with a pardon. A pardon, aside from its legal status, is a strong, symbolic apology to each and every person who has been wronged.
However, the disregard and pardon schemes in England and Wales are significantly flawed because they encompass only a small fraction of the laws that, over the decades and centuries, have immiserated the lives of gay and bisexual people. For five years I have worked closely with my noble friend Lord Lexden and, as I said, with Professor Paul Johnson at the University of York.
Significant problems, as I said, remain in this disregard and pardon scheme. The amendments before your Lordships would cover, for instance, now-repealed criminal offences such as the offence of solicitation by men, which was used to entrap gay and bisexual men, sometimes for doing nothing more than chatting up another adult man. The amendments would also cover the offences in the repealed service discipline Acts, which were once used to prosecute and punish consensual same-sex relationships. Those living with cautions or convictions for these and other relevant offences would be able to apply for a disregard and, if successful, be pardoned. Those who have died will be posthumously pardoned.
It is important that I am absolutely clear on one point: no one who was cautioned or convicted in respect of conduct that would be an offence today would be able to attain a disregard or receive a pardon. Our amendments to the Bill contain the strongest safeguards to ensure that those who committed crimes that today remain crimes cannot take advantage of, or benefit from, the disregard and pardon scheme. Equally, the extension of the disregard scheme that we propose means that it should be decided on a case-by-case basis by the Secretary of State, who would grant a disregard only if satisfied that the conduct in question would not be an offence today.
I could speak longer and in greater detail on crimes that have been perpetrated against homosexual men and bisexual men over 500 years, but I will say nothing more. I beg to move the amendment.
Lord Lexden (Con)
My Lords, I endorse all that my noble friend Lord Cashman has just said. We have been close allies, as he mentioned, for five years, in a sustained campaign to bring far more gay people within the scope of a hugely important scheme, through which they can attain disregards and pardons for offences that have been rightly overturned by Parliament. The House will understand how earnestly we hope that the end of our campaign is at last in sight.
Our amendments include provisions originally incorporated in amendments to the Armed Forces Bill, now completing its passage through the House. The provisions in question have now been embodied in these amendments. This has been done on the advice of the two Ministers concerned—my noble friends Lady Goldie and Lady Williams—with whom most helpful conversations have been held.
I refer to the provisions that relate to the Armed Forces. More gay members of our Armed Forces need the belated release from past injustice that our proposal will provide. Many were routinely punished, sometimes with imprisonment, under the service discipline offences, for actions such as disgraceful conduct for engaging in consensual same-sex activity, even when, after 1967, this was perfectly legal for civilians. They must now have the redress that our amendments would provide. Medals have been restored to former gay service personnel. Their reputations must be fully restored, too, by the removal of the stains that they should never have borne in the first place.
It was through initiatives in this House that the disregard and pardon scheme was significantly extended, five years ago. It is immensely gratifying to know that wide support exists across the House today for the scheme’s further enlargement to bring redress to many more gay people who have suffered grave injustice, particularly former gallant members of our Armed Forces, who served our country in peace and in war.
Baroness Bennett of Manor Castle (GP)
My Lords, I rise to briefly and extremely humbly speak on behalf of my noble friend Lady Jones of Moulsecoomb, who signed Amendment 266. I am greatly honoured to follow two such champions of this matter of undoing great injustices of the past.
I want to record our support for this and also to ask the Minister a question—to which I do not expect an answer now. These clauses provide for people to apply. Why can we not have a situation where we go through, find and identify these case and wipe them clean? That is the question I was asked to ask, and I am asking it. I do not necessarily expect an answer now, but I am putting it on the record.
Lord Paddick (LD)
My Lords, we support these amendments, so ably proposed by the noble Lord, Lord Cashman, supported by the noble Lord, Lord Lexden. I also pay tribute to the Minister for her sympathetic approach to these issues over the years. These offences should never have been offences in the first place. It therefore makes complete sense that, if people were convicted of such an offence and they apply to have a conviction or caution disregarded, and if that application is successful, they should be pardoned. Of course, deceased persons falling into this category cannot apply to have a conviction or caution disregarded, but they should be able to receive a posthumous pardon if the offence qualifies. It has taken 500 years to get to this stage and the Government have been making progress on these issues. These are the final pieces of the jigsaw and we support them.
Lord Ponsonby of Shulbrede (Lab)
My Lords, my noble and learned friend Lord Falconer also added his name to this amendment. We clearly support the amendments. I pay tribute to my noble friend Lord Cashman and the noble Lord, Lord Lexden, who I understand campaigned for decades on this issue. I thought it was quite moving, if I may use that word, to hear the noble Lord, Lord Lexden, saying he earnestly hoped that he was coming towards the end of his campaign. I hope he is right and that the Minister may be able to give him some comfort in that respect. Everybody who has contributed to the debate thinks this is a thoroughly appropriate amendment and, even though it has been a very truncated debate, the passion and the sense of finality have come through, and I very much hope that the Minister will give a suitable response.
Baroness Williams of Trafford (Con)
My Lords, it is about three minutes to the witching hour and I am absolutely delighted to be able to respond on behalf of the Government to these amendments. I and the Government are committed to enabling those with historical convictions for decriminalised homosexual conduct to apply to have their convictions disregarded. To answer the noble Baroness, Lady Bennett of Manor Castle, in discussion with the noble Lord, Lord Cashman, Professor Paul Johnson and my noble friend Lord Lexden, we felt that this was the neatest way to do it, as opposed to any other way. We have been actively exploring whether further offences can be brought within the scope of the scheme, to enable more people, both civilians and ex-service personnel, to benefit from it.
I really want at this point to pay tribute to my noble friend Lord Lexden and to the noble Lord, Lord Cashman, who is my noble friend, and to Professor Paul Johnson at the University of York for his expertise on this issue. I am very grateful for the conversations we have had on these amendments and similar amendments to the Armed Forces Bill. I am also grateful to the noble Lords for reiterating their commitment during Committee to work with the Home Office and the MoD on the best way forward for achieving our joint desire to redress this historic injustice.
We accept that the current scheme may be too narrow, as it is essentially confined to convictions for the now-repealed offences of buggery and gross indecency between men, but, as noble Lords have indicated, other now-repealed offences were also used to unfairly target gay men and women simply because of their sexuality. In further righting these historic wrongs, we need to ensure that any disregards in respect of additional offences meet the established legal criteria to ensure that necessary safeguards are upheld—this is something we have agreed and that the noble Lord, Lord Cashman. has outlined tonight. The disregard scheme was deliberately and carefully designed in a way that ensures that the Home Office does not inadvertently disregard convictions or cautions for behaviours which are still illegal today or which involved other illegal behaviours, such as underage or non-consensual sex or sexual activity in a public toilet, which is still an offence under Section 71 of the Sexual Offences Act.
Lord Cashman (Non-Afl)
My Lords, I thank all noble Lords who have spoken and pay tribute to the Minister, my noble friend Lady Williams. Brevity is the soul of wit, but tonight we have proven that it can also deliver that which is right and just. We will await the outcome of discussions and, as one would expect, reserve the right to bring forward proposals on Report if necessary. I beg leave to withdraw the amendment.